Draft Port Phillip Bay Environmental Management Plan 2017–2027 Supporting Document
November 2016 How the Plan is being developed
TECHNICAL AND SCIENTIFIC DISCUSSION PAPER (BACKGROUND) INVESTIGATIONS 2015
CONSULTATION ROUND 1 Early 2016
DRAFT PLAN
WE ARE HERE CONSULTATION WE NEED YOUR INPUT ROUND 2 Nov 2016–Feb 2017
FINAL PLAN 2017
IMPLEMENTATION 2017–2027
Have your say The Victorian Government welcomes and encourages the involvement of all Victorians in helping shape the new Environmental Management Plan for Port Phillip Bay. Your ideas and input will help to inform the final plan, so that together we can take the right actions in the right places to achieve our vision for the Bay.
Public consultation on the draft Plan will be open until 10 February 2017.
Have your say on the draft Environmental Have Management Plan for Port Phillip Bay your Answer survey questions or make a submission say Register to attend a community workshop Visit haveyoursay.delwp.vic.gov.au/healthofthebay
Cover photo – Parks Victoria
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan Contents
1 Introduction 3 Purpose and structure of this document
2 Port Phillip Bay and its management 7 Values, challenges and management
3 Informing the new Plan 27 Community and scientific input
4 The new draft Plan 37 Vision 38 Goals 39 Priority areas and actions 40 Framework 42 Priority area 1: Connect and inspire 44 Priority area 2: Empower action 49 Priority area 3: Nutrients and pollutants 52 Priority area 4: Litter 59 Priority area 5: Pathogens (human health) 63 Priority area 6: Habitat and marine life 68 Priority area 7: Marine biosecurity 74
5 Delivering the Environmental Management Plan 78
References 80
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
1 Giant Spider Crabs (Leptomithrax gaimardii) at Rye Pier. Photo – David Reinhard
2 Introduction 1
The Victorian Government is delivering on its The first Environmental Management Plan commitment to protect and enhance the health for the Bay, developed in 2001, has been an of Victoria’s marine and coastal environments important guiding document, driving over by developing a new Environmental $220 million of investment to address key risks Management Plan for Port Phillip Bay. to the Bay’s health. Nutrient loads to the Bay have been significantly reduced, water quality This Plan is required under the State Environment parameters are being more closely monitored, Protection Policy (Waters of Victoria) – Schedule and the marine pest program has helped to F6 Waters of Port Phillip Bay (1997). This Plan conserve marine life and bay processes. This applies to ‘all the waters of Port Phillip Bay investment has helped to ensure the continued bounded by the high water mark, a line drawn health of the Bay. between Point Lonsdale and Point Nepean and a line across the mouth of the Yarra River’. This draft Plan identifies the tools and tasks Schedule F6 sets out what the environmental needed to ensure that the Bay continues to be management plan must achieve. These healthy and resilient in the face of population requirements include: growth and climate change. This Plan will also help Victorians to recognise the multiple • determining the priority management issues environmental, social and economic values • outlining actions that respond to priority issues that the Bay provides. • identifying management responsibility for particular issues • coordinating the management for protection of the Bay’s beneficial uses and values • identifying specific management actions for nutrients, suspended solids, pathogens, litter and marine pests • providing a process for reviewing and reporting progress to the community.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
3 This draft Plan has been developed by the Department of Environment, Land, Water and Planning (DELWP) in partnership with Melbourne Water and the Environment Protection Authority (EPA) Victoria. It will be delivered over ten years, with annual reporting on progress and major evaluation at five-yearly intervals. Development of this Plan has been informed by input and advice from government and industry through a project reference group, key stakeholders through targeted engagement, and the broader community through public consultation. This Plan has also been informed by investigations on the values of the Bay and threats to these values and their management.
Purpose of this document This supporting document details the development of this Plan, highlighting key points from the background investigations and detailing proposed actions. This document is designed to be a stand-alone companion document to complement the main document for this Plan – Draft Port Phillip Bay Environmental Management Plan: 2017–2027 – and has been written for a more technically minded audience or for those who would like more detail on the Plan’s context and how it was developed.
This draft Plan acknowledges the connection of Aboriginal people to the Bay and aims to improve their role in managing the Bay and preserving their cultural values.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
4 For over 30,000 years, people of the Kulin nation lived, hunted and gathered on this great plain, which we now know as Port Phillip Bay (Rhodes, 2007). Evidence of occupation is provided in the many Aboriginal stories and archeological sites around the Bay. One of these stories is reproduced below; with acknowledgement that each of the Kulin nation tribes has their own stories to tell.
Boon Wurrung's Creation story of Port Phillip Bay: Many years ago the biik (land) we now call The people became frightened and went to greater Melbourne extended right out to the Bundjil, their creator and spiritual leader. They warreeny (sea). Nairm (Port Phillip Bay) was then asked Bundjil to stop the warreeny from rising. a large flat grassy plain. The Yarra River, as it is Bundjil was angry with his people, and he told known today, flowed out across this flat plain into them that they would have to change their ways the warreeny. if they wanted to save their land. The people This large plain was covered in buath (grass) and thought about what they had been doing and tarrang biik (woodlands) on which the Boon Wurrung made a promise to follow Bundjil. men hunted guyeem (kangaroo) and barramaeel Bundjil walked out to the warreeny, raised his (emu). The bagurrk (women) cultivated the murrnong tjeera (spear) and directed the warreeny to stop (yam daisy). They collected food from the wurneet rising. Bundjil then made the Boon Wurrung (creek) and the warreeny and harvested the iilk promise that they would respect the laws. (eels) that migrated through there every year. The baany never subsided but stayed to create One day – many, many years ago – there came a large bay that the Boon Wurrung called Nairm. a time of chaos and crisis. The Boon Wurrung and Today it is known as Port Phillip Bay. The warreeny the other Kulin nations were in conflict. They took away much of the biik of the Boon Wurrung argued and fought. They neglected their biik. The and much of their barerarerungar was reduced murrnong was neglected. The animals were over to a narrow strip of coastline. killed and not always eaten. The gurnbak (fish) were caught during their spawning season. The iilk were The Boon Wurrung learnt from their mistakes. not harvested. They returned to their old values and the laws of Bundjil. They took greater care of the biik As this chaos grew, the warreeny became angry of Bundjil and the bubup (child) of Bundjil. and began to rise. The wurneet became flooded and eventually the whole flat plain was covered Aboriginal creation story as told by Boon Wurrung Elder Carolyn Briggs, and published in Nyernila - Listen in baany (water). It threatened to flood their whole Continuously by the Victorian Aboriginal Corporation for barerarerungar (country). Languages (2014).
South Channel pile lighthouse completed in 1874, provided navigation for shipping until 1985. It was relocated and restored by Parks Victoria in 1998, and is a popular site to visit by boat. The lower deck is a haul out site for Australian fur seals. Photo – Will Molloy
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
5 The Common Greenshank (Tringa nebularia) is a migratory shorebird that arrives in early spring to feed on intertidal and wetland invertebrates, prior to their arduous northward passage in early autumn. Photo – Dillon Wan
6 Port Phillip Bay and its management 2
Port Phillip Bay was formed some 8,000 years The Bay incorporates many smaller bays, ago when rising sea levels at the end of the last sounds, bights, coves and inlets (such as ice age resulted in flooding of the delta of the Hobsons Bay and Corio Bay), which are all Yarra and Werribee rivers. Prior to flooding from considered parts of the larger Port Phillip Bay. the sea, the wide expanses of the plains had The Bay and its catchment are shown in Figure 1. been inhabited by Aboriginal communities for The Bay hosts a diversity of ecosystems and over 30,000 years. There remain many Aboriginal habitats including sandy beaches, rocky shores cultural heritage landscapes and places of and saltmarsh within the intertidal zones; and significance recorded around the Bay. In more un-vegetated soft sediments, seagrass beds, recent times the ecology of the Bay has been rocky reefs and open water in the sub-tidal areas. greatly modified by human activity, especially in the last 150 years following European settlement These habitats are home to thousands of (Edmunds et al., 2006). species of marine animals and plants, from the microalgae (phytoplankton) and microscopic Port Phillip Bay animals (zooplankton) in the water column and on the bed of the Bay (microphytobenthos and The Bay is the largest marine embayment zoobenthos) to seagrasses and seaweeds, fish, in Victoria. It covers an area of approximately penguins, seals, dolphins and visiting whales 1,930 square kilometres, has a coastline of (Harris et al. 1996). 333 kilometres and a catchment area of close to 10,000 square kilometres.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
7 Bay processes enclosed by sandy shoals (the Great Sands), beaches and fringing reefs. The Bay receives freshwater inflows from two main sources: the Yarra River (with its major tributary the The maximum depth in the Bay is 24 metres, but Maribyrnong River) and the Western Treatment average depth is just 13 metres, with more than Plant. Other freshwater sources include rivers and half the Bay shallower than 8 metres. Wind-driven creeks, and hundreds of local stormwater drains. currents are the primary source of vertical and With the exception of the Western Treatment Plant, horizontal mixing. This, together with the shallow a large proportion of the inflows to the Bay occur depth, helps to ensure the Bay is well aerated following rainfall events in the catchment. (Harris et al. 1996). A conceptual model of the Bays and its processes is Movement of water within the Bay is important for shown in Figure 2. It illustrates the complexity of the dispersing inputs from the catchments, including Bay's features, values, threats and processes that freshwater, nutrients and sediments. However, mixing need to be considered in developing this Plan. and dispersal efficiency varies across the Bay. Areas nearer to the shore and in bays, such as Hobsons The Bay is semi-enclosed, with a narrow entrance Bay and Corio Bay, have limited mixing. This affects (approximately 3.2 kilometres wide) at Port Phillip the ability to process catchment runoff and waste Heads. The narrow entrance limits water exchange discharges, which results in these parts of the Bay between the Bay and Bass Strait and is significant being more impacted by poor water quality. to the way the Bay functions. The central basin is
0 20 40
NORTH kilometers
Major waterways
Catchment boundary
Urban growth area
Existing urban landuse area
Sewage treatment plant
Figure 1 Port Phillip Bay and catchment
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
8 Bay processes enclosed by sandy shoals (the Great Sands), beaches and fringing reefs. The Bay receives freshwater inflows from two main sources: the Yarra River (with its major tributary the The maximum depth in the Bay is 24 metres, but Climate Change Maribyrnong River) and the Western Treatment average depth is just 13 metres, with more than Agriculture Plant. Other freshwater sources include rivers and half the Bay shallower than 8 metres. Wind-driven creeks, and hundreds of local stormwater drains. currents are the primary source of vertical and Sediment With the exception of the Western Treatment Plant, horizontal mixing. This, together with the shallow Input Yarra River depth, helps to ensure the Bay is well aerated a large proportion of the inflows to the Bay occur Upper Yarra Dam following rainfall events in the catchment. (Harris et al. 1996). Maribyrnong River A conceptual model of the Bays and its processes is Movement of water within the Bay is important for Melbourne Nutrient Input shown in Figure 2. It illustrates the complexity of the dispersing inputs from the catchments, including Dandenong Creek Bay's features, values, threats and processes that freshwater, nutrients and sediments. However, mixing Werribee River and dispersal efficiency varies across the Bay. Areas need to be considered in developing this Plan. Sediments nearer to the shore and in bays, such as Hobsons The Bay is semi-enclosed, with a narrow entrance Bay and Corio Bay, have limited mixing. This affects Western (approximately 3.2 kilometres wide) at Port Phillip the ability to process catchment runoff and waste Treatment Plant Heads. The narrow entrance limits water exchange discharges, which results in these parts of the Bay Frankston between the Bay and Bass Strait and is significant Pollution being more impacted by poor water quality. Thermodynamics Aquaculture Atmospheric to the way the Bay functions. The central basin is Heating & Exchange Cooling Denitrification Seagrass Benthic Algae Sediments Swan Bay Mixing Iconic Species 0 20 40 Geelong
NORTH kilometers Tourism Ocean Exchange Salinity Input
VALUES THREATS/ISSUES PROCESSES Port Phillip Bay provides The functioning of the system could The Bay environment is controlled a range of benefits to the be compromised by a number of threats by a number of physical, chemical community. These include: and issues: and biological processes:
Recreation Pollution Chemicals, pathogens, litter and Catchment Runoff/River Inflows deliver nutrients from urban, industrial and agricultural nutrients, pollutants and sediment to the Bay Tourism sources (including stormwater and wastewater discharges) contribute to reducing water quality Tidal Saline Water Exchange Seawater Aquaculture enters the system from Bass Strait Sea Level Rise Increase in sea levels due to climate Sediment Resuspension, Erosion and Wetlands change may significantly affect hydrodynamics and coastal processes Deposition Sediment is resuspended by water currents, wind and waves. This leads Biodiversity Flooding Flooding and seawater intrusion can to increased turbidity and smothering occur due to increased intensity of rainfall and Recreational Fishing sea level rise Thermodynamics/Evaporation Heating of the water surface leads to evaporation and Commercial Fishing Algal Blooms Algal blooms in nearshore waters increased salinity have serious impacts on commercial and Reef Habitat recreation activities Mixing Mixing of the water column is driven by wind and tidal generated currents Seagrass Habitat Hypoxia Low oxygen in bottom waters due to consumption of oxygen by sediments affects Atmospheric Exchange Oxygen, nitrogen Chemicals, pathogens, litter and nutrients and other chemicals are exchanged across Major waterways Iconic Species marine life from urban, industrial and agricultural the air water interface sources (including stormwater and Marine Pests Invasive species may out-compete Catchment boundary Shipping/Navigation wastewater discharges) contribute to native species for resources. Pests may be Denitrification Nitrate is released from the Urban growth area reducing water quality introduced as a result of biofouling and ballast system as gas due to microbial processes water discharge. in the sediment Existing urban landuse area Benthic Algae Algal growth impacts on Sewage treatment plant a range of sediment processes in the Bay
Climate Change A warming climate leads to higher sea levels, more frequent and Symbols courtesy of the Integration intense storm events (with accompanying and Application Network, University of Maryland Center for Environmental storm surges and rainfall), and higher Figure 1 Port Phillip Bay and catchment Science (ian.umces.edu/symbols/). water temperatures.
Figure 2 Conceptual model of Bay values, threats and processes (adapted from EPA) Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
8 9 Catchment and inflows The Bay has a land catchment area of 9,694 square kilometres. Land use is approximately 32% urban, The volume and quality of inflowing waters is 46% rural land and 21% forested (Figure 5 from dependent on a range of factors, but principally Jacobs and HydroNumerics 2015a). Melbourne, with land use and rainfall. Across the catchment there is a population in 2013 of 4.3 million people (Department significant variation in average annual rainfall, with of Transport, Planning and Local Infrastructure 2014), catchments to the east of Melbourne being wetter surrounds much of the Bay, with the central business than those to the north and west (Figure 3 from district located near its northern edge. Geelong, Jacobs and HydroNumerics 2015a). Stormwater with a population of approximately 200,000, borders runoff, particularly from urban areas, is a threat to the south-western shore of the Bay. the values in waterways and the Bay, and to public health because it carries sediments, nutrients, The Bay and its catchment are highly connected. toxicants, pathogens and litter into the Bay Pollutants can flow to the Bay from any part of the (Melbourne Water 2013). catchment, via the drainage network. Therefore, actions to reduce pollutants entering drains or Figure 4 shows annual flow volumes since July 1990 waterways in the catchment will benefit the Bay. for the Yarra River together with annual rainfall Although for bioavailable compounds, such as for the corresponding period. The graph highlights nutrients, the benefits tend to decrease the further the variation in annual rainfall across the past 25 from the Bay that the intervention is undertaken. years and shows the strong correlation between the amount of rainfall and flows, including runoff. A key area of concern is the increase in stormwater This means that loads of nutrients and other runoff associated with increased urbanisation and pollutants entering the Bay are highly dependent more intensive agriculture across the catchment, on rainfall, and will vary significantly between wet which are expected to be compounded by increased and dry years. population and climate change. Concentrations of nutrients and sediment are also significantly higher during and following rainfall events.
Maribyrnong
Yarra
Werribee
Dandenong
Figure 3 Mean annual rainfall (mm) (1970-2015) for Port Phillip Bay catchments
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
10 0
500
1000000 1000
800000 Annual Rainfall (mm) Rainfall Annual
600000
400000
200000
Annual Flow (ML) Flow Annual 0 2011/12 2011/12 2010/11 2010/11 2012/13 2012/13 1991/92 1991/92 2013/14 2013/14 1997/98 1997/98 1990/91 1990/91 1996/97 1996/97 1992/93 1992/93 1995/96 1995/96 1994/95 1994/95 1998/99 1998/99 2001/02 2001/02 1993/94 1993/94 2009/10 2009/10 1999/00 1999/00 2007/08 2007/08 2000/01 2000/01 2006/07 2006/07 2002/03 2002/03 2005/06 2005/06 2004/05 2004/05 2008/09 2008/09 2003/04 2003/04
Figure 4 Annual rainfall for Melbourne (top) and annual flows (bottom) in the Yarra River measured at Chandler Highway, Kew
Figure 5 Landuse map used for catchment modelling, which covers Port Phillip Bay and Westernport catchments. Table relates to areas of the catchment draining to Port Phillip Bay
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
11 Current health of the Bay beaches around the Bay met end-of-season water quality objectives (as specified in Schedule F6) for Environmental monitoring indicates that the Bay swimming, with the remaining beach (Mentone) continues to show good water quality, which is safe experiencing a higher number of days of poor for swimming and fishing, and supports a diverse water quality due to stormwater pollution issues. range of marine life (DSE 2012, EPA 2012b, Hirst et al A similar pattern was displayed in the 2014/15 and 2011, Hirst et al 2012, Longmore 2014, Woods and 2013/14 summers, with over 90% of beaches meeting Edmunds 2014). end-of-season objectives. The EPA undertakes water quality monitoring In previous summers (2011/12 and 2012/13), when monthly at eight sites across the Bay (and has done higher rainfall events washed greater quantities of so for 30 years). Standard parameters monitored pollutants to the Bay, the number of beaches that include nutrients, water clarity, dissolved oxygen, met these objectives dropped below 60%. salinity, algae (chlorophyll-a) and some monitoring of metals. Using this data, a Water Quality Index It is important to note that monitoring and reporting score is calculated for each site based on the level on the Bay’s health to date have been focused of attainment against the water quality objective. on understanding traditional water quality issues. There are other aspects of Bay health that have The Water Quality Index scores show that average received less attention, such as assessments of water quality in the Bay is good with a general litter and the condition of marine life and habitat. but small improvement over the period since 2001. This Plan and the new State of Bays report to However, there are localised variations that reflect be released by the Office of the Commissioner for proximity to catchment inflows. Sites remote from Environmental Sustainability will address these gaps these inflows, and closer to The Heads, have better in understanding. water quality. While water quality in the western part of the Values and challenges Bay (Geelong Arm) is less frequently affected by stormwater, these areas can be impacted Bay values by wastewater discharge from the Western The Bay provides and supports a wide range of Treatment Plant. uses, functions and features that have great social, economic and environmental importance. We refer Hobsons Bay, at the northern end of the Bay, is to these collectively as values. frequently affected by stormwater. Water quality there has varied between fair and good since 2001, During development of this Plan, a list of marine with better water quality generally corresponding values for the Bay was identified through a Desktop with periods of lower rainfall and stormwater runoff. Review of Victoria’s Marine Values (Hale and Brooks 2015). These marine values were adjusted to align Pathogens are not included in the Water Quality with beneficial uses as defined in the SEPP (Waters Index. However, pathogen levels which indicate the of Victoria). The resulting list of values, along with potential risk of sickness, are measured by the EPA the broader benefits towards which they contribute at 36 beaches around the Bay throughout summer are shown in Table 1. (EPA 2016). During the 2015/16 summer, 97% of
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
12 Table 1 Marine values considered in developing this Plan
Value Description
Primary This relates to people being in direct contact with, or immersed in, the water. This includes contact activities such as swimming, water-play and diving. Primary contact rates are significantly recreation higher over the summer period.
Secondary This relates to people being in close contact with the water or water spray. This includes contact activities such as boating, kayaking and sailing. Boat ramps, marinas and jetties, which recreation provide access to the Bay for fishing and sight-seeing, facilitate secondary contact.
Aesthetic Aesthetic enjoyment of the Bay is associated with the emotional enjoyment derived from vistas enjoyment of the open water and coastal habitats. Beneficiaries include people who view the Bay from their offices, apartments and houses, as well as from cafes, restaurants, and other locations around the Bay.
Aquaculture There are seven aquaculture fisheries reserves in the Bay that produce around 800–900 tonnes of mussels a year (DPI 2012). In addition there are onshore abalone farms that circulate water to and from the Bay.
Commercial Commercial fishing in the Bay includes the use of longlines, nets and other authorised gear fishing types, with target species including Snapper, King George whiting, Flathead, Squid and Pilchards. The Bay also supports commercial diving for abalone, scallop and sea urchins.
Recreational Recreational fishing is popular and includes fishing from the shore, jetties and boats. Popular fishing species for anglers include: Australian salmon, Bream, Flathead, Garfish, King George whiting, Leatherjacket, Silver trevally, Snapper, Squid and Yellow-eye mullet.
Seagrass Seagrass in the Bay is predominantly Zostera nigricaulis and Zostera muelleri with smaller areas of Halophila australis and Amphibolis antarctica. Most of the seagrass (Zostera spp.) is located in the south and west of the Bay (Corio, Bay, Swan Bay, Mud Islands and Mornington Peninsula) in waters less than seven metres deep (Ball et al. 2014).
Intertidal and This habitat includes the non-vegetated sands, silts and mudflats that occur in the shallow sub-tidal flats areas of the Bay. It supports productive microphytobenthos and benthic invertebrate communities (Poore and Rainer 1979; Beardall and Light 1997).
Intertidal and The Bay contains diverse intertidal and subtidal rocky reef habitat. This includes shallow sub-tidal reefs habitats in the north and south centre of the Bay as well as the deep reef habitats at the entrance. These support a diversity of macro-algae, sponges, invertebrates and fish (Hart et al. 2005; Woods et al. 2013; Woods and Edmunds 2014).
Saltmarsh There are over 1800 hectares of saltmarsh and about 6 hectares of mangrove around the Bay, and which provide important habitat for marine invertebrates and waterbirds. Key locations mangroves include Swan Bay, Geelong Arm and Werribee coastal regions (Boon et al. 2011).
Fish The Bay supports a diverse fish community that includes iconic species such as the Weedy seadragon, as well as commercially and recreationally important species like Snapper and King George whiting.
Waterbirds Over 130 species of waterbirds, includes seabirds, shorebirds and Little penguins as well as ducks and large waders, have been recorded within the Bay (Hale 2012). 47 species are listed under international migratory agreements. Important shorebird habitats exist in the north and west of the Bay. Mud Islands in the southern part of the Bay are an important breeding colony for ibis, terns and gulls. The St Kilda breakwater is home to a Little penguin colony.
Marine There are two species of resident dolphins in the Bay: Bottlenose and Common. The Common mammals dolphins (Delphinus delphis) in the Bay are unusual in that they are an isolated population of about 30, which are resident in the Bay (Charlton-Robb et al. 2014, Mason et al. 2016). There are several haul out sites for Australian fur seal located in the south of the Bay, but the species does not breed in the Bay (Kirkwood et al. 2010). Several species of whales, including Humpback, Southern Right and Killer also visit the Bay.
Denitrification Denitrification (the process of converting bioavailable nitrogen to nitrogen gas and subsequent loss to the atmosphere) is critical in maintaining water quality in the Bay (Harris et al. 1996; Longmore 2014).
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
13 Environmental values There are four marine protected areas in the Bay, including the Port Phillip Heads Marine National The Bay supports a variety of habitats. Along the Park, and Point Cooke, Jawbone and Ricketts foreshore are sandy beaches, rocky intertidal reefs, Point Marine Sanctuaries. These areas have been mud flats and saltmarshes. Habitats within the Bay established to protect a sample of Victoria's marine include seagrass meadows, rocky subtidal reefs, plants and animals and their habitats. sponge gardens, and unvegetated soft sediments (sands and silts). Seagrass beds provide nurseries The Bay is home to a diverse range of marine for many fish species and rocky reefs provide a plants and animals, many of which are found substrate for hundreds of species of seaweed, and nowhere else. This includes many species of fish, the unvegetated soft sediments are home to a molluscs, crustaceans, polychaete (bristle) worms, diverse array of invertebrates. The generalised cnidarians (e.g. jellyfish and sea anemones) and habitat map presented in Figure 6 draws together sponges (Harris et al. 1996). The Bay also supports information from various datasets being compiled populations of marine mammals including seals, by Deakin University for DELWP. dolphins and visiting whales.
Melbourne
Werribee Brighton
Mordialloc
Port Phillip Bay
Portarlington Frankston
Geelong
Mornington
Queenscliff
Portsea Rosebud
Reef/rock substratum Rivers Seagrass on sediment Water bodies 052.5 10 Seaweed on sediment Marine NP and sanctuaries Mud Ramsar sites kilometres Silty mud City/towns * The broad habitat classes for Port Phillip Bay Muddy sand is an interim dataset Sand
Figure 6 Port Phillip Bay habitat map
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
14 The Port Phillip Bay (western shoreline) and Bellarine The Bay provides important cultural values that Peninsula, and the Edithvale-Seaford Wetlands contribute to our sense of place and identity, Ramsar sites are recognised for the quality of their including landscapes and sites of historical and wetlands and large numbers of Australian and cultural significance. Aboriginal tribes that live on internationally important migratory birds that use and around the Bay include the Wathaurung, the them for feeding and roosting. The diversity of Bunurong/Boon Wurrung, and the Wurundjeri. wetlands range from former salt-works at Point These tribes are all part of the Kulin nation. Through Cook and the sewage ponds at Western Treatment their cultural traditions, Aboriginal people maintain Plant, to the seagrass meadows of Swan Bay. their connection to their ancestral lands and waters. It is important that this connection to Country is Environmental values underpin many of the other strengthened and that the Aboriginal values and values we have for the Bay. The water quality and interests in the Bay are recognised. diversity and abundance of marine life together determine our enjoyment of the social, cultural and Victoria’s first European settlement in the Bay was economic benefits of a healthy marine system. established in 1803 at Sullivan Bay, near Sorrento, 32 years before Melbourne was founded. There are Social and cultural values also many shipwrecks and other heritage sites in the Bay associated with early seafaring days. The Bay is one of Victoria's most popular recreational destinations and contributes significantly to Melbourne’s livability. It is popular Economic values with local, regional, national and international The Bay supports Victoria’s largest commercial visitors. Parks Victoria (2015) estimates that there ports. The Port of Melbourne is Australia’s busiest are nearly 60 million visits per year to local port container port, handling approximately 36% of facilities in the Bay. The Bay is also appreciated national container trade, and around 3,000 ship from afar, providing visual and other amenity visits (Port of Melbourne Corporation, 2015). The benefits to visitors and nearby residents. Port of Geelong is Victoria’s largest regional port and its most important bulk commodities port. The Bay and its beaches support a range of In 2014/15 the Port of Geelong managed a gross recreational activities including swimming, tonnage of 14.5 million and 639 ship visits (Victorian snorkelling, kite-surfing, scuba diving, fishing, sailing Regional Channels Authority, 2015). and boating as well as sand-play, walking, relaxing and socialising. There are 135 beaches in the Bay, Commercial fishing has operated in the Bay for which are patrolled by 27 lifesaving clubs. Many over 170 years. Annual production of finfish between great locations to see the Bay’s unique marine life 1978 and 2012 averaged around 1,200 tonnes per by diving and snorkeling are found throughout the year, and for 2009/10 the fish catch had a market Bay including within the Marine National Park and value of about $3.5 million (DPI 2012). The value of the three Marine Sanctuaries. the commercial catch will decline in future, as a result of a phasing out of netting and a buy-back of Recreational fishing and boating are important commercial licences. Aquaculture and commercial values of the Bay, which deliver social and economic diving for abalone, scallop and sea urchins also benefit to coastal communities through visitation take place in the Bay. Farming of Blue mussels is and tourism. There are over 40 boating and sailing the predominant aquaculture activity, with seven clubs around the Bay, and over 50 boat ramps that aquaculture fisheries reserves located in the Bay. enable access to the Bay. Recreational fishing and Production of mussels is around 900 tonnes per boating participation is projected to increase with year (DPI, 2012). Recreational fishing is also an population growth. important contributor to the Victorian economy, The opportunities for recreation and socialising with an estimated economic worth upwards of $420 that the Bay provides are an important contributor million per year (derived from economic analysis to our health and wellbeing. There is growing by Ernst and Young 2015). evidence that time spent in natural places, including The Bay’s natural features and recreational the Bay, is associated with positive long-term health opportunities make it an important tourist outcomes. destination and, with its associated industries, The large number of community groups and is a major contributor to the Victorian economy, individuals that actively contribute to management with estimates at more than $320 million per year. of the Bay and its foreshore, including ‘Friends of’ Commercially operated boat tourism in the Bay groups, Coastcare Victoria and Beach Patrol groups, offering wildlife watching experiences (dolphins, reflects the strong connection that many people seals and penguins) and recreational diving is also have to the Bay. an important contributor to the economy. Many bayside businesses, such as restaurants and cafes, are reliant on the amenity of the Bay.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
15 The Bay provides important goods and services Increased urbanisation will also require enlargement (collectively referred to as ‘ecosystem services’) that of drainage and sewage systems – if their discharges have economic value for our community. These include are not actively managed, it will affect the quality of nutrient cycling, receipt of wastewater, storm protection, the waters flowing into the Bay. amenity and food (e.g. fish). The estimated values (non-additive) of some of these services include: Stormwater • Nitrogen cycling: the Bay naturally processes Under a changing climate there will be more years more than 5,000 tonnes of nitrogen per year with less rainfall, but more intense rainfall events from catchment runoff and treated wastewater over summer. This will result in higher event-related discharge, thus preventing eutrophication (which flows to the Bay containing nutrients, sediments and leads to algal blooms, anoxia and other negative other pollutants. This could lead to more frequent effects). This service is potentially worth $11 billion, algal blooms and periods of poor water quality, based on a replacement cost of $2,250/tonne potentially resulting in closures of popular beaches (Marsden Jacob Associates 2014), when compared if not appropriately managed. to managing the nitrogen in the catchment Research undertaken by Melbourne Water to support through the construction of wetlands or new its 2015 Waterways and Drainage Investment Plan wastewater treatment plants. showed that households place high importance on • Coastal protection: saltmarshes, mangroves and protecting the Bay, and want increased government wetlands provide in the order of $3 million per action to reduce runoff and pollutants. kilometre of coastal protection benefits, when compared to the alternative of having to construct Litter seawall protection for communities (DELWP and Litter remains a significant challenge. It has a Parks Victoria 2015). negative impact on visual amenity, reduces water quality and can kill or harm marine animals. Previous • Carbon storage: each year the Bay stores in the estimates were that about 95% of litter found on our order of 8,500 tonnes of carbon (PP&W CMA 2015). beaches had been transported from suburban The economic value of this carbon capture is streets through the stormwater system (Melbourne about $1 million each year. If all carbon stored in Water 1993). However, concern has been raised that the saltmarsh, mangrove and seagrass habitats with more people using the Bay for recreation there was released, the one-off cost to offset these is likely to be an increase in direct littering within emissions would be in the order of $6 to $25 million. the Bay and on its beaches. Challenges Microplastics are an emerging issue of concern. These are small (< 5mm) pieces of plastics that come While much is being done to conserve the health of from broken-down plastic litter or from raw plastic the Bay, stressors associated with population growth manufacturing materials being washed off streets and climate change are increasing pressures on its into the drains and waterways. They can be eaten environmental assets. by marine animals impacting their health (Duckett and Repaci 2015, Maillard et al. 2013). Microplastics Population growth also include small synthetic fibres from the The Bay’s catchment is home to over four million breakdown of woven cloth, which can occur through people, and includes the cities of Melbourne and the process of clothes washing. Geelong. Growth forecasts are that the population of Melbourne will almost double over the next 35 Marine pests years, and significant growth is predicted for regional Marine pests are an ongoing risk to the ecology of centres around the Bay, including Geelong (DTPLI the Bay because they can compete with native 2014). The associated increase in urbanisation and species, alter habitats, reduce important fish stocks, intensification of agriculture to sustain the increased and potentially disrupt nitrogen cycling processes population, will present as significant challenges for (Barbee et al. 2016). The risk from marine pests is future management of the Bay. likely to increase because of the projected increases This increase in population presents both challenges in shipping traffic and small vessel movements, and opportunities, with more people using and which will increase the opportunity for marine pests enjoying the Bay in the future and taking an interest being introduced to and exported from the Bay. in its health. There will be a need for more services and facilities, including higher density living within Climate change established residential areas to accommodate a Climate change is likely to exacerbate some existing growing population. problems and create new ones. Water temperatures will increase, leading to a change in species composition, and changing patterns of underwater and coastal plant and animal communities.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
16 Sea levels will rise and storm surges will become more navigational aids, moorings and berths); and frequent, exposing the coastline to erosion and preparing and implementing safety and environment inundation, and squeezing coastal habitat between management plans. Parks Victoria is also the the sea and urban development. Under a changing waterway manager for the Yarra, Maribyrnong and climate there will be less rainfall, but more intense Patterson Rivers under the Marine Safety Act 2010. rainfall events in summer, causing flooding, erosion This includes management of vessel activities, in the catchment, and transportation of higher including control of navigation and vessel movement; sediment and nutrient loads to the Bay. removing and marking in-water obstructions; and channel maintenance within the local port area. It is therefore vital that the Bay and its catchment are managed to be healthy and resilient in the face The Port of Melbourne is managed by the Port of of these challenges. Collaborative, adaptive and Melbourne Corporation under the Port Services Act ongoing management of the Bay and its catchment 1995 and Port Management Act 1995. The Victorian will be required to ensure the Bay can continue to Regional Channels Authority manages commercial support the values that are important to Victorians. navigation of the channels in the Bay and the waters of the Port of Geelong. Responsibilities of these Responsibilities, legislation and policy for commercial port operators include shipping control, environmental management of the Bay channel management, the provision of navigation aids, and the development and implementation of Management responsibilities safety and environment management plans (SEMP). Appropriate and coordinated management of the Other agencies with a role in conserving and caring Bay is crucial to ensure its ongoing health and for the Bay and its catchment include: capacity to support a diverse range of values and activities. • Committees of management for Crown land reserves Most of the marine areas of the Bay are classified as unreserved Crown land under the Land Act 1958, • Department of Economic Development, Jobs, and are under the administrative control of DELWP. Transport and Resources (which includes DELWP is also responsible for leading and Agriculture, Biosecurity, Fisheries and Tourism) coordinating environmental management of the • Department of Health and Human Services Bay, along with other roles including wildlife protection, incident response, planning and issuing • Local government (including local councils, permits for works. Municipal Association of Victoria, and Association of Bayside Municipalities) Melbourne Water and the Corangamite Catchment Management Authority (CMA) have waterway • Office of the Commissioner for Environmental management functions under the Water Act 1989 Sustainability for designated waterways within their respective • Sustainability Victoria areas. They have enabling functions within the Act, • Transport Safety Victoria to develop and implement plans, carry out works, and activities to improve environmental values, typically • Victorian Coastal Council and Central in priority areas. The Port Phillip and Westernport Coastal Board CMA also has an important role in catchment • Victorian Planning Authority management, helping to address issues that affect the health of waterways. • Water corporations (Barwon Water, Central Highlands Water, City West Water, South East EPA is the environmental regulator and has Water, Southern Rural Water, Western Water, responsibility for independent assessment, reporting and Yarra Valley Water) and advice regarding environmental health issues affecting waterways and the Bay. The EPA is also • Zoos Victoria. responsible for administrating and enforcing the SEPP (Waters of Victoria) and other pollution Aboriginal groups from the Kulin nation represent regulations. the views and understanding of Traditional Owners, and can provide valuable heritage and ecological Park Victoria manages the Bay’s marine national knowledge in Bay management. parks and marine sanctuaries that form part of Victoria’s park and reserve system. Parks Victoria There are also a large number of non-government is also the port manager for local ports within the conservation and community organisations that Bay under the Port Management Act 1995 and is play a significant role in protecting the health of the responsible for ensuring that local port operations Bay through on-ground activities and research. are safe, efficient and effective; managing port infrastructure (including piers and jetties,
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
17 Policy setting for this Plan The Port Phillip Heads Marine National Park and three marine sanctuaries (Point Cooke, Jawbone Management of the Bay occurs within a network and Ricketts Point) located in the Bay are of state, regional and local strategies, plans and established and managed under the National policies. Most of these relate indirectly to the Parks Act 1975. The area within 200 metres of Bay through activities that focus on stormwater, South Channel Fort is also reserved under the waterways, catchments and coastal areas, but National Parks Act 1975. The Act establishes which have impact upon Bay conditions. The key the statutory basis for the protection, use and documents are set out in Figure 7. Further detail management of these parks and reserves. Parks regarding key legislation and policies that directly Victoria is responsible for the management of influence the management are outlined below, along marine protected areas. with a number of current Victorian Government initiatives. The Bay foreshore includes the intertidal zone and the area immediately landward of it. Most Current legislation and policy of the foreshore is classified as reserved Crown land under the Crown Land (Reserves) Act 1978 Management of the Bay is guided by a number for a variety of purposes including the protection of pieces of legislation and government policy that of the coastline, the preservation of species of directly relate to marine and coastal environments. native plants, and areas for public recreation. These are: Management of this land is often delegated to • Environment Protection Act 1970 and State committees of management, who are appointed Environment Protection Policy (Waters of Victoria) by the Minister for Energy, Environment and Climate Change. Committees of management can State Environment Protection Policies (SEPPs) are be a government agency such as Parks Victoria, subordinate legislation made under the provisions local councils, or voluntary community groups. of the Environment Protection Act 1970. They aim to safeguard the environment and humans from • Coastal Management Act 1995 the effects of pollution and waste. The Coastal Management Act 1995 establishes SEPP (Waters of Victoria) sets out Victoria’s the legislative framework for planning and water quality expectations. It establishes the managing the Victorian coast. The Act establishes pathway for protecting and improving the quality the Victorian Coastal Council and Regional of surface water environments in a context that Coastal Boards, provides for the preparation supports economic and social development. and implementation of management plans for Schedule F6 Waters of Port Phillip Bay provides coastal Crown land, and provides a co-ordinated the directive for this Plan. Schedule F6 identifies approach to approvals for the use and values present in various parts of the Bay that development of coastal Crown land. need to be protected, and sets water quality Coastal Crown land is generally all Crown land objectives for various environmental quality within 200m of the high tide mark and the seabed indicators. of Victorian coastal waters, including the Bay. The Victorian Government is currently reviewing All use or development of coastal Crown land by the State Environment Protection Policy (Waters any party, including committees of management of Victoria) and State Environment Protection and local councils, requires consent under the Act. Policy (Groundwaters of Victoria) to ensure clear The Victorian Coastal Council is established and relevant standards and legal obligations to under the Act. Its responsibilities include statewide protect and improve the health of our aquatic strategic planning and preparation of the environments. Victorian Coastal Strategy. The Victorian Coastal Strategy 2014 provides a long-term vision for the • Land Act 1958, Crown Land Reserves Act 1978 planning, management and sustainable use of the and National Parks Act 1975 coast and identifies high-level policies and actions The majority of the floor and overlying waters to help achieve the vision, which is: ‘a healthy of the Bay is classified as unreserved Crown coast, appreciated by all, now and in the future’. land under the Land Act 1958, and DELWP is the designated land manager for these areas.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
18 The Central Regional Coastal Plan 2015–2020 is a • State of the Bays reporting statutory document endorsed under the Coastal The Victorian Commissioner for Environmental Management Act 1995 and prepared by the Central Sustainability has committed to deliver the first Coastal Board. It identifies eight regional priorities: State of the Bays report in late 2016. This report 1 Population growth – balancing access and will provide a scientifically rigorous baseline report valuing the natural environment on the health of Port Phillip Bay and Western Port 2 A dapting to climate change and increased against which future reporting can be compared. coastal hazards The State of the Bays report will consider existing research and data, identify knowledge gaps, 3 Integrating coastal planning and management propose new data collection and monitoring 4 Sustainable and equitable funding mechanisms priorities, and develop indicators for future reporting for coastal infrastructure and management on the State of the Bays. Having an updated 5 Implementing the Recreational Boating condition status for the Bay will provide a baseline Facilities Framework for evaluating the effectiveness of this Plan. State 6 Sustainable visitation and tourism infrastructure of the Bays will also be an important part of the service through the development of a multi-level monitoring and reporting framework of this Plan. hierarchy 7 Protecting significant coastal and marine • Port Phillip Bay Fund ecosystems and habitats Some of the proceeds from the Port of Melbourne 8 Promoting leadership, co-ordination and 50-year lease will support the new Port Phillip capacity building. Bay Fund over the next four years. The fund, announced in March 2016, will support projects New legislation and policy to protect and preserve the Bay including water quality improvement, dune stability, amenity This Plan will be complemented by a number of new upgrades and wetlands improvements. policies or revisions of existing ones. These include development of the SEPP (Waters), Marine and Coastal legislation, Water for Victoria plan and • Water for Victoria the first State of the Bays report. Further detail on Water for Victoria was released in October 2016, these initiatives and how they relate to or may and plans for a future with less water as Victoria impact this Plan is provided below. responds to the impacts of climate change and • State Environment Protection Policy a growing population. (Waters of Victoria) review Strategic directions in the Water for Victoria plan As part of the State Environment Protection will strengthen management of the Bay’s health by: Policy (Waters of Victoria) review, consideration is – Improving protection arrangements for urban being given to setting load targets for catchment waterways through improved landuse planning inputs to marine receiving waters. Water quality controls, and more comprehensive place-based modelling and load projections undertaken by integrated water management planning Jacobs and HydroNumerics (2015a, b) for this Plan is helping to inform government decisions – Improving stormwater management through on water quality objectives and policy targets. changes to planning and building regulations, The new SEPP (Waters) is planned to be released use of catchment-based stormwater offsets, by government in 2018. setting of water quality indicators that protect beneficial uses, and establishment of a risk- based framework to manage unlicensed • Marine and Coastal Act pollution sources The Victorian Government is developing a new – Increasing community involvement in land, Marine and Coastal Act, which will see coastal water and biodiversity management through and marine management better integrated greater recognition of Aboriginal values and within the same system for the first time. The ecological knowledge, and investment in new Act will provide the legislative framework to citizen science programs for local waterways support the vision of a healthy coast and marine environment in the face of future long-term – Improving waterway management through challenges. It will guide marine and coastal aligned monitoring and reporting of waterway strategies and the reports that sit beneath it. health, sharing of knowledge, and the use of The government is also looking to develop better scientific esearchr to underpin evidence-based management and oversight arrangements for decision-making and adaptive management. coastal and marine environments as part of developing the new Act.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
19 • Yarra River Protection Ministerial • Climate Change Framework and Advisory Committee Adaptation Plan A Ministerial Advisory Committee has been The Climate Change Framework will articulate the established to provide advice to the government government’s long-term vision and approach to on the key issues and opportunities for the Yarra climate change in one policy document. It will River. The discussion paper, which was released draw together all of the work happening across in July 2016, identifies current and emerging issues government on climate change. This includes that are impacting on environmental, cultural, building on projects such as the Our Coast project, social and economic values; and considers how which is using the latest data on projected sea level statutory policies and planning mechanisms can rises and storm surges to help coastal communities be used to reduce impacts. Management of and government agencies plan and respond to the stormwater and reduction of pollutant loads impact of climate change. from existing urban areas in the Yarra catchment will improve Bay health. • Plan Melbourne Refresh The government is undertaking a refresh of Plan • Draft Biodiversity Plan, Protecting Victoria's Melbourne. Building on key concepts and Environment – Biodiversity 2036 commitments, with a strengthened focus on The Victorian Government's draft Biodiversity housing affordability and diversity, climate change Plan, Protecting Victoria's Environment – and energy efficiency, and updating transport Biodiversity 2036, is a long-term strategy that priorities. Plan Melbourne will create the blueprint proposes a new direction for the management of for action that will define the future shape and biodiversity in Victoria. A key component of the sustainability of Melbourne and broader Victoria. draft plan is to encourage people to value and It will provide a framework for supporting jobs protect our natural environment. and growth, while building on Melbourne’s legacy of distinctiveness and liveability. It will also link • Review of the Flora and Fauna Guarantee Act 1988 Melbourne and regional Victoria – including a plan to support population and economic growth The government is reviewing the Flora and Fauna and connectivity across the state. Guarantee Act 1988. The aim of the review is to improve the effectiveness and efficiency of the • Victorian Government Aboriginal design and implementation of the Act in Inclusion Framework protecting Victoria's biodiversity, including threatened species and their habitats. The The Aboriginal Inclusion Framework helps review will also consider how the Act can support ensure services are accessible and inclusive for implementation of the Biodiversity Plan and Aboriginal Victorians and provides for increased interact more effectively with other legislation employment opportunities. The framework relevant to biodiversity conservation. outlines the objective to provide policy makers, program managers and service providers with • Independent Inquiry into the Environment a structure for reviewing their practice and Protection Authority (EPA) reforming the way they engage with and address the needs of Aboriginal people in Victoria. A Ministerial Advisory Committee has examined the EPA's role, powers and tools, governance and funding. The inquiry concluded on 31 March 2016 when the Ministerial Advisory Committee delivered its report to the then Minister for Environment, Climate Change and Water. The Victorian Government is now considering the report's findings and its recommendations. This Plan will need to take into consideration the outcomes of this inquiry as they become apparent.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
20 Requirements, measures and guidelines for protection
Environment Land Coastal Marine Flora Wildlife Water Fisheries Climate Catchment Protection Act Management and and Fauna Act Act Act 1995 Change and Land Act 1970 1958 Act 1995 Coastal Guarantee 1975 1989 Act 2010 Protection Act Act 1988 Act 1994 LEGISLATION Other legislation (use and objectives for land): Crown Land (Reserves) Act 1978, National Parks Act 1975, Planning and Environment Act 1987
Defining policy, setting values and determining environmental quality indicators
Victorian State Environment Water for Protecting Victorian Plan Yarra Coastal Protection Policy Victoria Victoria's Waterway Melbourne Ministerial Strategy (Waters of Victoria) Environment Management Refresh Advisory Lead: – Biodiversity Strategy Council Lead: DELWP (Schedule F6 Waters DELWP Lead: DELWP 2036 of Port Phillip Bay) Lead: DELWP Lead: DELWP
POLICY SETTING POLICY Lead: DELWP Lead: DELWP
Outlining actions and targets to manage risks and protect values
Central Port Phillip Bay Regional Catchment Corangamite Regional Climate Change Regional Environmental & Waterway Strategies Marine & Coastal Riparian Framework Coastal Plan Management Biodiversity Action Plan Lead: Corangamite Climate Change Plan Strategy Lead: Central CMA, Port Phillip & Lead: DELWP Adaptation Plan Coastal Board Lead: DELWP Westernport CMA, Lead: Lead: DELWP
IMPLEMENTATION Melbourne Water Corangamite POLICY STRATEGIC CMA
Specific tasks and on-ground programs for achieving actions and targets
Local Coastal Catchment Discharge licenses Marine Protected Local Operational Management Plans Waterway & Drainage Area Management Plans Lead: EPA Victoria Investment Plans Plans Lead: coastal public Lead: Water land managers Lead: Melbourne Water, Lead: Parks corporations and (e.g. local council Corangamite CMA, Port Victoria local councils
OPERATIONAL & OPERATIONAL & committees of Phillip & Westernport INVESTMENT PLANS INVESTMENT management) CMA
Assessing the effectiveness of policies and actions
State of the State of the Environment Beach Report Catchment Condition There are also project- Bays report Reporting and management specific monitoring and Lead: Reports reporting programs that Lead: Lead: Commissioner EPA Victoria report on both actions Commissioner for for Environmental Lead: Victorian and environmental Environmental Sustainabilty Catchment conditions
& REPORTING & Sustainability Management Council MONITORING, EVALUATION EVALUATION MONITORING,
New marine, coastal and Bay environment initiatives Currently under review, in draft or in development
Figure 7 Policy context for environmental management of Port Phillip Bay
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
21 Achievements to date • Fifty-two wetlands were constructed in urban areas to prevent up to 109 tonnes of nitrogen The 2001 Plan was a major driver for new approaches from entering waterways. and associated on-ground works to manage nutrients and marine pests. Further investment • Programs to improve rural land management in major infrastructure was undertaken through practices in the cropping, grazing and implementation of the Better Bays and Waterways horticulture industries were developed and water quality improvement plan from 2009–2013. implemented. These programs focused on raising The Victorian Coastal Strategy and Central Regional awareness and building capacity, encouraged Coastal Plan have also contributed to more informed landholders to adopt best practice land outcomes for Bay health. Highlights of achievements management approaches and provided of the 2001 Plan and other initiatives are summarised assistance to landholders to restore degraded in Figure 8, and include: land and reduce nutrient runoff. • Water sensitive urban design (WSUD) has been Nutrients promoted heavily since 2001. Actions include the Objectives identified in the nutrients program of introduction of mandatory stormwater quality the 2001 Plan included a 500 tonne annual reduction performance standards for new developments, in nitrogen load from the Western Treatment Plant revision of Clause 56 of the Victoria Planning and a 500 tonne annual reduction in load from Provisions to include stormwater quality objectives catchment waterways. for sub-divisions, implementation of a development stormwater offset scheme, and Integrated modelling for the development of the preparation and implementation of Municipal new Port Phillip Bay Environmental Management Stormwater Management Plans. Plan by Jacobs and HydroNumerics (2015a) has shown that the nitrogen load reduction target of • Measures were introduced to reduce nitrogen 1,000 tonnes per year was met through a combination discharge from industrial, sewerage and of upgrades to the Western Treatment Plant, aquaculture sources. These included upgrades implementation of water sensitive urban design to local sewage treatment plants, connection of to manage urban stormwater, and improved rural small wastewater treatment plants to larger land management. Specific achievements included: sewerage systems and increased reuse of wastewater. • The 500 tonne nitrogen reduction target for Western Treatment Plant inputs was met as a • Water quality monitoring programs were result of significant upgrades to the plant established, including the nutrient cycling completed in 2004–05. monitoring program and storm event monitoring program; and EPA’s fixed site water quality monitoring program has continued.
Western Treatment Plant – activated sludge plants within the treatment lagoons have enhanced nitrogen removal. Photo - Melbourne Water
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
22 Northern Pacific seastar(Asterias amurensis) is a marine pest that was discovered in the Bay in 1995. It is thought to have been introduced to the Bay via discharge of ship ballast water. Photo – mrpbps
Marine pests • Engagement and communications programs The objective of the marine pest program was to were undertaken to educate small boat operators improve the management of vectors that lead to on simple steps to avoid translocating marine the introduction of marine pests, and to reduce the pests. The Boating Industry Association of impact from introductions through early detection Victoria implemented a communication program and rapid response. The 2001 Plan recognised that to reduce the risk of pest relocation by small many risks associated with marine pests are most vessel operators. effectively addressed through nationally agreed • Victorian Guidelines for Assessing Translocations arrangements and, in their absence, statewide of Live Aquatic Organisms in Victoria were programs. As a result, a number of initiatives (such completed to help control the risk of introduction as the national ballast water management system) and spread through aquaculture. Protocols to help improve management of marine pests have developed under the guidelines included the been, or are being, undertaken at a national or Victorian Protocol for the Translocation of Blue state level. Mussels; the Victorian Abalone Aquaculture Achievements of the marine pest program included: Translocation Protocol and Management Plans for aquaculture reserves declared under the • The EPA released the Waste Management Fisheries Act 1995. Policy (Ships Ballast Water) in 2004 and in 2006 published Environment Protection (Ships Ballast Water) Regulations to ensure that high-risk ballast water was not discharged into Victorian ports or waters.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
23 Other relevant achievements for the management • The Commonwealth Biosecurity Act 2015 of marine pests at the national level included: replaced the Quarantine Act 1908 and provides a framework for consistent national regulation • Introduction in 2001 of mandatory Australian of ballast water management. The timing for Ballast Water Management Requirements for transition from state-based to national regulation internationally sourced ballast water and trial of of domestic ballast water is yet to be confirmed. a national approach for ballast water management at the Port of Hastings. Research programs • National System for the Prevention and Following the 2001 Plan, investment in research Management of Introduced Marine Pest Incursions has continued to improve our knowledge and (the National System) was introduced in 2009. understanding of the Bay. The Seagrass and Reefs • Series of national biofouling management Program was a $5.5 million investment into research guidelines were published under the National and management of seagrass and temperate reefs. System between 2009 and 2013 for recreational Key outcomes include better understanding of vessels, non-trading vessels, commercial fishing ecological processes for seagrass and temperate vessels, the petroleum production and exploration reef habitat. The program also provided funding industry, commercial vessels and the aquaculture to Museum Victoria for development of a Marine industry. Taxonomic Reference Toolkit. The toolkit includes images and taxonomic and habitat information • Australian marine pest monitoring guidelines and for over 1,000 animal species that inhabit or have accompanying Australian marine pest monitoring been recorded in the Bay. manual were published in 2010 as part of the National System. While a lot of work and research has been done to help protect and enhance the health of the Bay • National Control Plans were developed under since the 2001 Plan, there is still more to do to ensure the National System and published in 2009 for the Bay remains healthy and resilient and responds control of the Northern Pacific seastar (Asterias to the pressures of a growing population and the amurensis), Asian bag or Date mussel (Musculista challenges associated with climate change. senhousia), European green shore crab (Carcinus maenus), Japanese seaweed or wakame (Undaria pinnatifolia), European or basket shell clam (Varicorbula gibba) and European fan worm (Sabella spallanzani).
Subtidal rocky reef at Jawbone Marine Sanctuary, with native eleven-armed seastar (Coscinasterias muricata) and sea urchins (Helliocidaris erythrogramma), over a bed of Blue mussels (Mytilus edulis). Photo – Parks Victoria
24 Infrastructure Local planning
Achievement of the 500 Introduction of mandatory Implementation of a tonne reduction target in stormwater quality stormwater offset service for annual nitrogen loads to the performances standards for new developments which Bay through investment of new developments through cannot meet best practice $160 million in upgrades to Clause 56 of the planning stormwater management the Western Treatment Plant scheme under Clause 56
$60 million invested to $20 million provided to councils in the Bay catchment to remove 109 tonnes of prepare and implement their Municipal Stormwater nitrogen from waterways Strategies, including construction of raingardens, wetlands through construction of 52 and other strategic water sensitive urban design projects wetlands and other water sensitive urban design initiatives
Education and incentives
More than 10 capacity building programs in partnership with local government, community groups and landholders to develop and implement best management practices for reducing nitrogen inputs to waterways from rural areas
Incentives for landholders to restore degraded land and reduce sediment and nutrient loads to waterways and the Bay through fencing of stream frontages and revegetation
Engagement and communications programs with small boat operators to raise awareness and encourage adoption of simple steps to avoid translocating marine pests
Monitoring and research Policy and guidelines
A Bay Undertook Invested Publication of the Waste nutrient cycling research to $5.5 million in Management Policy (Ships monitoring better research on Ballast water) and program, understand seagrass and Environment Protection (Ships established existing marine temperate reefs Ballast water) Regulations to in 2001/02 pest populations reduce the risk of spreading and impacts on marine pests through domestic nutrient cycling ballast water A storm event processes in the monitoring Bay's sediments Contribution to the National program, System for the Prevention and established Management of Marine Pest in 2001/02 Incursions in collaboration with other governments
Figure 8 Highlights of environmental management for the Bay since 2001
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
25 Australasian Snapper (Pagrus auratus) at Ricketts Point. Photo – David Reinhard
26 Informing the new Plan 3
The approach for developing this Plan was to establish the long-term vision and goals for the Bay, and develop priority areas and actions that could achieve those goals and vision. The vision, goals, priority areas and actions have been informed by background investigations, targeted stakeholder engagement and public consultation (Figure 9). Key reports from the background investigations are listed in Table 2.
Table 2 Background investigations completed for this Plan Investigation Output
Desktop review of Victoria’s Identified and collated information on values (particularly relating Marine values (Hale and to the SEPP beneficial uses) in Victoria’s marine environment Brooks 2015) including Port Phillip Bay.
Prioritising Environmental Identified pressures and stressors that pose the greatest risk Issues (Hale and Brooks 2016) to Bay values, and assessed priorities for further investigation and management.
Science Knowledge Synthesis Collated current scientific knowledge on the status of nitrogen (Barbee et al. 2016) cycling, marine pests and pollutants in the Bay as a basis for developing management actions.
Catchment to Bay model Modelled estimates of nutrient, sediment and pathogen loads under (Jacobs and HydroNumerics different catchment scenarios, allowing for climate change and 2015a, b) population growth, and their impact on water quality in the Bay.
Community and stakeholder Provided snapshot of community and stakeholder’s vision, values consultation (DELWP 2016) and challenges to consider in developing this Plan.
Other activities undertaken to inform this Plan included a review of the achievements and learnings from the 2001 Plan, a review of policies and programs, and an assessment of the economic benefits provided by the Bay and how these may change in the future.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
27 Assessed requirements of What does the community SEPP and other policies and key stakeholders want? Vision
Literature review of Bay What are government values (Hale and Brooks) responsibilities and priorities?
Goals Stakeholder and What will inspire action community consultation and connect with people?
Prioritising environmental issues (Hale and Brooks)
Synthesis of science knowledge (CAPIM, University of Melbourne) What is the science telling us about key threats?
Catchment to Bay modelling (Jacobs Priority areas for What is the economic and Hydronumerics) environmental benefit of protecting the management Bay, and how may this Review of existing change in the future? policies and programs (EMP Project team) What do stakeholders Targets and the community (where considered Assessed outputs from want action on? appropriate) other reviews and research programs What is not being sufficiently managed through existing Actions for each Stakeholder consultation policies and programs? priority area Management Plan PortNew Phillip Bay Environmental
What can be achieved over the next ten years? Economic assessment of Bay values (DELWP)
Figure 9 Process for developing the Environmental Management Plan
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
28 Community input Through discussions, drawings and vision statements, attendees outlined a desire to see Public consultation was undertaken in January and comprehensive management of the Bay. Many February 2016 to inform the key directions of this commented on the connection between managing Plan. Promoted under the theme ‘What does a litter, ecosystem issues and stormwater to improve Healthy Port Phillip Bay mean to you?’, consultation water quality and marine habitats. sought to understand:
• the values of the Bay that are important to Online survey community and key stakeholders In the online survey, respondents prioritised litter • key challenges associated with protecting management and water quality. People wanted the health of the Bay improved water quality for better habitats and marine life, and less litter. Many respondents also • community and stakeholder aspirations for wanted improved management of jet skis. the future management of the Bay.
Formal submissions and stakeholder meetings A range of consultation opportunities were Formal submissions and meetings focused on provided to gain input from across the breadth more specific issues and aspirations; however, of the community. These included: they offered that the vision should: • beachside listening post events (held at Rye, • articulate what success looks like Elwood, Altona and Queenscliff), attended by approximately 430 people • ensure future generations can enjoy a healthy Bay • online survey completed by 1058 people • be based on a hierarchy of values that puts the environment first followed by social and economic • formal submissions from 13 stakeholders. values (because the latter two depend on a healthy environment). Overall the consultation indicated a strong level of community interest in the care and management of the Bay. Further details on the consultation and key insights are presented in the Consultation Summary Report.
Beachside listening post events Attendees spoke highly of the Bay and its importance to the state and the economy. They valued the Bay as a place for recreation and enjoyment. Many expressed an appreciation of its marine life, emphasising the need to educate the broader community about the Bay’s natural features and measures needed to protect these.
Beachside listening post at Queenscliff, February 2016. Photo – Melbourne Water
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
29 Scientific input (Barbee et al. 2016). These issues were further assessed through development of an integrated The scientific investigations commenced with catchment and bay water quality model (Jacobs the Desktop review of Victoria’s marine values and HydroNumerics 2015a, b). (Hale and Brooks 2015). This was followed by an environmental risk assessment to prioritise issues Prioritising environmental issues for consideration in this Plan, and to identify those stressors that required further examination of An environmental risk assessment was used as a available science (Hale and Brooks 2016). The screening tool to identify pressures (threatening science knowledge synthesis, which was activities) and stressors (the physical and chemical undertaken by the Centre for Aquatic Pollution changes due to an activity) that pose the greatest Identification and Management (CAPIM), examined risk to Bay values (Hale and Brooks 2016). Pressures the current state of knowledge of nutrients, marine and stressors included in the assessment, and their pests and pollutants (including litter) in the Bay level of concern, are shown in Table 3.
Table 3 Pressures and stressors for the Bay and level of concern Pressure Level of concern
Climate change Very high Catchment inflows (including stormwater) High Western Treatment Plant Medium Invasive species Medium Biological resource use Low Recreational activities Low Shipping and navigation (oil spills) Very low Commercial development (dredging) Very low Disturbance of coastal acid sulphate soils Very low
Stressor Level of concern
Increased nutrients Very high Toxicants Very high Increased frequency and intensity of storms (erosion of shorelines) High Litter (including microplastics) High Increased sediments (resuspension by waves and dredging) High Increased droughts (increased salinity, decreased nutrients) High Sea level rise High Increased temperature High Marine pests (includes overabundant native species) High Ocean acidification Medium Hydrocarbons Medium Recreational fishing Medium Weeds Medium Pathogens Medium Commercial fishing Low Vehicles in intertidal areas Low Vessels Very low Increased carbon dioxide Very low Passive recreation on beaches and shorelines Very low
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
30 Pressures rated as the highest level of concern The risk of marine pests being introduced to and in the risk assessment were climate change and spreading from the Bay, particularly via small catchment inflows. Catchment inflows (stormwater (commercial and recreational) vessels, was also and rivers) were identified as one of the biggest identified as a high-priority risk that should also pressures due to five stressors: increased nitrogen, be considered in this Plan. sediment, toxicants, litter and pathogens. There are also a large number of stressors associated with Toxicants climate change – including increased frequency Based on our current knowledge, many gaps still and duration of drought, increased frequency exist regarding the presence of different toxicants and intensity of storms, sea level rise, increased and their effects on Bay values (Barbee et al. 2016). temperature and ocean acidification. The science knowledge synthesis concluded Pathogens were rated as a medium level of concern that toxicants, such as metals and organochlorine as impacts for recreational use and aquaculture pesticides, are generally below guideline levels. are generally localised and short-term in nature. However, increased levels are found in a few localised However, the potential public health implications areas, including Hobsons and Corio Bays and where of pathogens and public expectations regarding the Mordialloc and Kananook Creeks discharge into being able to swim and collect shellfish in the Bay the Bay. mean that this is a significant issue that requires While the presence and sources of phosphorus and ongoing management and consideration. sediments are well described and the impacts of The environmental risk assessment was also used litter on key Bay values have been identified, there to identify values that are most at risk from the are a number of contaminants of emerging concern. identified stressors. Four values were categorised These include endocrine-disrupting compounds as being at most risk: waterbirds (including seabirds (EDCs), pharmaceuticals, flame retardants, pesticides and shorebirds as well as Little penguins), marine (other than organochlorines), and microplastics. mammals, sub-tidal and intertidal rocky reefs, These pollutants have not been monitored in the and fish. Bay in a systematic way, and in many instances their impacts on Bay values have not been well Marine pests and overabundant species characterised. The science knowledge synthesis highlighted that Sediments can have a significant impact on marine pests have a ubiquitous and permanent aesthetic, recreational and ecological values, and presence in the Bay. However, the Bay continues are vectors for transporting toxicants. Modelling by to support diverse and functioning ecosystems. Jacobs and HydroNumerics (2015a) showed that the Yarra Catchment is a major source of sediments, While there is limited knowledge of the current status with annual loads closely correlated to rainfall (i.e. of most pest species, the available evidence suggests loads are higher in wetter years – see Figure 10). that their impacts on nutrient cycling and The split between urban and rural sources is about biodiversity have been negligible and localised. 50/50; despite the area of rural land being twice the However, marine pests still pose considerable risks size of urban land (Figure 5). Figure 10 also highlights to biodiversity, aquaculture, ecosystem function and the efficiency of the treatment at the Western recreational amenity. They have the potential to have Treatment Plant for removing sediments. Modelling significant impacts on the Bay and these values, results have identified the need for improved particularly if there are changes to environmental management within catchments (urban and rural) conditions that are favourable for these species; to reduce sediment loads and their associated for example, warmer water, increased availability of toxicants from entering the Bay, especially in periods nutrients, or reduced predation by other species. This of high rainfall. suggests that marine pests should be considered as a long-term and ongoing threat to the Bay. Nutrients The science knowledge synthesis and environmental The Port Phillip Bay Environmental Study (Harris risk assessment identified that the abundance of et al. 1996) found that most of the nitrogen entering some native species (i.e. sea urchins) has increased the Bay is removed by a highly efficient microbial in recent years. In some areas of the Bay, this is process (denitrification), which takes place on the adversely impacting Bay values through reducing sea bed. Maintaining the effectiveness of macroalgae coverage on sub-tidal rocky reefs, which denitrification by limiting nitrogen loads to the Bay then has detrimental impacts to other species. is important for maintaining a healthy marine ecosystem (Barbee et al. 2016).
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
31 Total Suspended Solids Loads to Bay (tonnes/year)
90,000
80,000
70,000
60,000
50,000
40,000
30,000
20,000
10,000
0 2011/12 2010/11 2012/13 2014/15 2013/14 1997/98 1996/97 1998/99 2001/02 2009/10 1999/00 2000/01 2006/07 2002/03 2005/06 2004/05 2008/09 2003/04 12007/08
TSS – Yarra TSS – Werribee TSS – Dandenong TSS – Maribyrnong TSS – WTP
Figure 10 Estimated annual loads of sediment (total suspended solids, TSS) based on catchment modelling. Loads for Werribee and Dandenong include contributions from smaller rivers and creeks that discharge directly to the Bay in those regions.
Total Nitrogen Loads to Bay (tonnes/year)
7,000
6,000
5,000
4,000
3,000
2,000
1,000
0 2011/12 2010/11 2012/13 2014/15 2013/14 1997/98 1996/97 1998/99 2001/02 2009/10 1999/00 2000/01 2006/07 2002/03 2005/06 2004/05 2008/09 2003/04 12007/08 TN – Yarra TN – Werribee TN – Dandenong TN – Maribyrnong TN – Other TN– WTP
Figure 11 Estimated annual loads of total nitrogen (TN) based on catchment modelling. Loads for Werribee and Dandenong include contributions from smaller rivers and creeks that discharge directly to the Bay in those regions. Other, includes discharges from drains and minor waterways not included in the four major catchments/regions, direct discharge of groundwater and atmospheric deposition to the Bay.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
32 The conceptual model of nutrient cycling in the Bay Key factors with the potential to affect (Figure 12) is predicated on the following principles denitrification include: and observations (from Longmore 2014): • drivers for plankton growth (nutrient supply and • Nutrient inputs stimulate plankton growth. physical conditions – light, temperature, salinity) • Plankton growth is limited by the availability of • oxygen regime at the sediment surface nutrients, particularly nitrogen. • mechanisms (e.g. bio-irrigation by infauna) that • Diatoms make up a significant proportion of the affect nutrient transport through the sediment. plankton, and settle to the seabed where they are Continued low levels of nitrogen inputs help to decomposed by microbes. ensure that the marine ecosystem remains robust • Microbial activity consumes oxygen and releases and able to support a diversity of plants and animals. nutrients into the sediment and water column. Estimated annual loads of total nitrogen to the Bay • Biogeochemical processes transport regenerated from 1996/97 to 2014/15 are shown in Figure 11. The nitrogen between oxygen-rich and oxygen-poor largest contribution of nitrogen is from the Western zones in the sediment to facilitate sequential Treatment Plant. The second largest contribution nitrification and denitrification. is from the Yarra Catchment, which carries runoff • Denitrification is the key process limiting nitrogen from urban and rural land. Runoff for the Werribee, availability and associated plant growth. It has Maribyrnong and Dandenong catchments are also high value as an ecosystem service, because it significant contributors, but vary significantly leads to the net loss of nitrogen from the system, between years in response to flooding events preventing long-lived algal blooms. (Jacobs and HydroNumerics 2015a).
Figure 12 Conceptual model of nutrient cycling in Port Phillip Bay under low (left) and high (right) nutrient loadings
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
33 Since 2001, there has been a significant reduction contribute 43% of total nitrogen, with rural pasture in loads from the Western Treatment Plant due to contributing 42%, and horticulture/cropping improved treatment processes, reduced inflows, and contributing 8% of total nitrogen respectively. increased recycling during drier periods. Loads from Contributions from forested areas were only 8%. On other sources (drains and minor waterways not a per hectare basis, the contribution from urban is included in the four major catchments, direct greater. Results from modelling undertaken by discharge of groundwater, and atmospheric Jacobs and HydroNumerics (2015a) aligned with deposition) contribute about 5% of the total the earlier analysis. load to the Bay (Figure 11). An action from the 2001 Plan was to undertake Scenario modelling monitoring of the nitrogen cycling process The catchment and bay model developed by biannually at two sites in the Bay: Hobsons Bay and Jacobs and Hydrodynamics (2015a, b) was used to Bay Central (Longmore 2014). This monitoring has assess the risk to Bay values from increased loads confirmed the continued efficiency of denitrification of nutrients, sediments and pathogens. Scenarios and the conceptual understanding of nitrogen were modelled to analyse the predicted outcomes cycling reported by Harris et al. (1996). for a broad selection of management options under future environmental conditions (climate change Integrated water quality modelling undertaken by and population projections out to 2030 and 2050). Jacobs and HydroNumerics (2015a, b) for this Plan These scenarios included management interventions has verified the previous estimates for nitrogen to reduce nutrient and sediment loads from urban loads to the Bay and the efficiency of the nitrogen and rural areas through improved stormwater cycling process that occurs within the Bay. management and better rural land management Western Treatment Plant: Discharges from the practices. Western Treatment Plant are affected by the A key finding from the integrated modelling was volume of sewage flowing to the plant (inflows), that based on projections to 2050, if no changes weather impacts on processes within the plant are made to current operations at the Western (including capacity to contain storm flows), and the Treatment Plant and stormwater management was amount of water recycled for other uses. Based on not improved in the catchment, total nitrogen loads population forecasts and urban growth, inflows to to the Bay could increase to 8300 tonnes/year, the plant are expected to increase 45% by 2050. depending on whether annual rainfall was below or Nitrogen loads discharged from the Western above average. The model showed that if nitrogen Treatment Plant have varied greatly over the past loads increase to this level, 75th percentile for 50 years. During the early 1970s, discharge loads chlorophyll ‘a’ (Chla) at the EPA’s Hobsons Bay were estimated to be in the order of 6,000 tonnes of monitoring site could range between 6 and 8 lug/L. nitrogen per year. However, with the commissioning This level of Chla exceeds the 4 lug/L water quality of the Eastern Treatment Plant in the mid-1970s, objective derived from the EPA’s fixed site nitrogen loads were reduced significantly. Further monitoring over the past 25 years. With nitrogen operational changes and investment in new loads this high, beaches along the north eastern infrastructure between 2001 and 2005 were able shore would experience more frequent algal blooms. to achieve higher rates of nitrogen removal, which The science knowledge synthesis and modelling resulted in a further step change in annual loads to both identified that on a baywide scale the Bay is the Bay. These changes, together with the reduced currently functioning well in terms of denitrification inflows associated with the drought, saw nitrogen as a key process for nitrogen loss from the system. loads reduced to less than 1,500 tonnes per year Catchment modelling has indicated that the bulk (Figure 11); and in the wetter years loads still (about 60%) of the nitrogen load comes from the remained well below the target of 3,100 tonnes per Western Treatment Plant, with the remainder from year (Jacobs and HydroNumerics 2015a). diffuse sources across the catchment. The Yarra Catchment inputs: Fletcher and Deletic (2006) catchment contributes the highest loads of all the undertook a review of water quality knowledge for regional catchments, due to its larger area and the major catchments that drain to the Bay. They higher rainfall. These were similar to findings in stated that urban areas within the Yarra catchment the Port Phillip Bay Environmental Study (1996).
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
34 Constructed wetlands are used to clean up stormwater, and to reduce the discharge of nutrients, sediment and other pollutants to the Bay. Photo – Melbourne Water
The science knowledge synthesis indicated that The modelling identified that further upgrades to current inputs are having important localised, the Western Treatment Plant will offer the greatest small-scale effects in near-shore areas in the north potential to reduce nitrogen loads to the Bay, which and west of the Bay. However, further modelling and will lead to reduced algal productivity. However, field work is required to confirm the scale at which there will be no significant reduction in sediments Bay values are under threat, and what role nitrogen or pathogen loads, as the treatment plant has inputs actually play in threatening those values. already reduced these to acceptable levels. In comparison, catchment management initiatives Economic analysis undertaken by DELWP to inform have the potential to reduce nitrogen, sediments this Plan found that modelled increases in nitrogen, and pathogen loads, which offer greater benefit sediments and pathogen loads would have to values for near-shore waters. significant economic impacts. Increased loads will result in more persistent algal blooms and The modelling also highlighted the need to consider poor water quality at beaches, which will have the management of the Bay at both baywide and local potential to reduce tourism contribution to the scales to protect Bay values such as recreational economy by at least $68 million per year and use, visual amenity and rocky reef habitats in reduce the value of enjoyment locals and tourists near-shore waters. derive from visiting the Bay by $39 million per year1.
1. Analyses by DELWP were based on scenario modelling by Jacobs and HydroNumerics (2015b). The estimated change in benefits does not reflect the full suite of actions that may be implemented. Also, estimated values more likely understate than overstate the long-term economic benefits under the potential scenarios, compared to a ‘do nothing more’ base case.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
35 Australian Fur-seal (Arctocephalus pusillus). Photo - chrisjansenimages.com
36 The new draft Plan 4
This section outlines the guiding principles for preparation of this Plan, the vision and goals that have been developed, and priority areas and actions needed to achieve those goals. These elements are visualised in the draft Environmental Management Plan framework. The development of this Plan has been guided by the key principles outlined in the draft Victorian biodiversity plan, Protecting Victoria’s Environment – Biodiversity 2036, and those in the Water for Victoria plan. In developing this Plan it is recognised that: • The Bay is in good health and supports a range of environmental, social and economic values. • The Bay will be affected by future pressures such as climate change and population growth, and we need to plan and manage for a resilient Bay and work towards long-term sustainability. • We need to recognise and build on past achievements made by the community, industry and government within the catchment and Bay to enhance values. • We need to work collectively to: - address legacy and future impacts affecting the health of the Bay - engage citizens and communities in decisions that affect the health of the Bay - work together to align outcomes. • We need to recognise and manage for Traditional Owner values and entitlements. • We need to demonstrate to the community that water quality management systems are effective in protecting and enhancing the values and uses of the Bay.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
37 A shared vision for the Bay The vision describes the long-term aspirations for environmental management of the Bay, based on the identified values and threats to these values. It has been informed by input and advice from government agencies, stakeholder groups and the community. The statements and drawings from various sources highlight the importance of managing challenges to the health of the Bay, and the role we all have to play in caring for it. Words like ‘clean’ and ‘healthy’ were used by respondents to support the values of marine life and habitat, water quality, recreation and fishing and lead to the desired outcome of the long-term health of the Bay. The vision also reflects the government’s responsibility to protect the values of the Bay, as outlined in Schedule F6.
OUR COLLECTIVE VISION FOR THE BAY IS: A healthy Port Phillip Bay that is valued and cared for by all Victorians
The Bay continues to support a wide range of community uses, diverse and abundant marine life, and the Victorian economy.
All Victorians care deeply for the Bay, enjoying the benefits that it provides, and being actively and enthusiastically engaged in ensuring the Bay and its marine life are thriving.
Government, business and the community work collaboratively to ensure that all contributions to maintaining a healthy Bay are complementary and aligned.
Management of the Bay responds to the pressures of population growth and climate change.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
38 Setting goals received through community consultation. Water quality was identified as the challenge most Three goals have been developed to achieve the respondents (32%) would like to see managed long-term vision for the health of the Bay and are followed by marine habitat (28%) and ecosystem supported by a series of actions. These goals are issues, including marine pests (24%). consistent and aligned with the goal of the Schedule F6 which is to protect the values of the There are a large number of policies and strategies Bay by minimising adverse impacts associated with in place that directly and indirectly influence the human activity and the use of the Bay and its health of the Bay. However, the community and catchment. The goals are also consistent with other stakeholders indicated that a comprehensive and Victorian Government environmental policies. consistent approach to management of the Bay was not apparent, and that there is a need for Findings from the background investigations, collaboration across sectors to look after the health stakeholder engagement, and public consultation of the Bay for people and biota. Feedback from have informed the goals for this Plan. The community consultation also indicated a desire for environmental risk assessment and scientific more people to ‘love the Bay’ highlighting the need knowledge synthesis have informed the decision to for stewardship of the Bay across all sectors. The prioritise improving water quality and habitats and goals of the draft Plan are therefore: marine life. This sentiment was echoed in feedback
GOAL 1 Stewardship of the Bay is fostered across community, industry and government
This goal aims to enhance Victorians’ appreciation for the Bay and support the development of partnerships between government, community and industry to improve the health of the Bay.
GOAL 2 Health and community enjoyment of the Bay is enhanced by best practice water quality management
This goal aims to ensure that the Bay continues to have good environmental and recreational water quality to support healthy and diverse ecosystems and the wide variety of human uses of the Bay, including swimming, boating and fishing.
GOAL 3 The Bay's habitats and marine life are thriving
This goal aims to support the health of the Bay’s marine life and habitats, including preventing the introduction and spread of exotic marine pests.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
39 The priority areas and actions This Environmental Management Plan focuses actions on seven priority areas: 1 Connect and inspire 2 Empower action (work together) 3 Nutrients and pollutants 4 Litter 5 Pathogens (human health) 6 Habitat and marine life 7 Marine biosecurity.
Priority areas were identified based on the findings from the background investigations, stakeholder engagement, and public consultation; and were assessed against a range of criteria, which included: • risk they pose to Bay health • need and the opportunity to improve their management and coordination • existing management controls (legislation, policy, regulation) • community’s level of concern • ability to achieve a positive and significant outcome in the Plan’s ten-year life.
Priority areas included in this Plan do not an adequate proxy for all pathogens contained in necessarily meet all of the above criteria. For stormwater. Therefore, further action is needed to example, 'Pathogens' was ranked as a medium risk address knowledge gaps and provide direction for in the environmental risk assessment based on the management. In addition, community consultation current use of Escherichia coli (E.coli) and indicated that recreation, and particularly enterococci as indicator bacteria for pathogen swimming and fishing, is of high value to the contamination of waters in the Bay. However, there community and should be a priority for active is uncertainty in the reliability of these indicators as management to minimise risks to human health.
In addition to the public consultation, a series of forums and discussion groups were used to help develop the priority areas and actions for this Plan. Photo – Jessica Fernandes
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
40 As a result of evaluation and prioritisation, there are many issues and activities which are not featured in this Plan. These issues are nevertheless acknowledged to be significant in the eyes of the government and the community. Table 4 highlights some of the relevant mechanisms that provide environmental management for some of these out-of-scope issues.
Table 4 Out-of-scope issues and their management Issue Rationale
Coastal foreshore issues, Managed through the Victorian Coastal Strategy, the Central Regional including erosion and Coastal Plan, local coastal management plans, and regional and local climate inundation change adaptation plans. In addition, the ten councils within the Association of Bayside Municipalities are undertaking the Bay Blueprint, a regional coastal adaptation framework for Port Phillip Bay.
Commercial and DEDJTR (Fisheries) manages and regulates commercial and recreational recreational fishing fishing in the Bay under the Fisheries Act 1995. Commercial netting in the Bay is being phased out by 2022 and participation in recreational fishing will be encouraged with enhanced fishing opportunities and facilities.
Dredging The creation and maintenance of shipping and boating channels for safe navigation requires dredging. Dredging is regulated via consents under the Coastal Management Act 1995. Major dredging operations may require additional approvals under the Environment Effects Act 1978. Those involved in dredging activities have a responsibility under the Environment Protection Act 1970 to minimise environmental impacts. The SEPP (Waters of Victoria) and accompanying Schedule F6 also contain specific provisions regarding dredging. Parks Victoria (as the designated local port manager under the Port Services Act 1995) is responsible for permitting and/or undertaking maintenance dredging for small boating facilities, including those at Queenscliff, Patterson River, Werribee River, St Kilda Pier and Mordialloc Creek. Port of Melbourne Corporation and Victorian Regional Channels Authority are responsible for dredging of commercial shipping channels and fairways in the Bay and port areas.
Marine vessels Under the Port Management Act 1995 and the Port Management Amendment Act 2012, managers of local and commercial ports are responsible for Safety and Environment Management Plans (SEMPs). Discharge of oil and other pollution to Victoria’s waters is prohibited under the Environment Protection Act 1970. Spill management is overseen by DEDJTR, and occurs under the National Plan for Maritime Environmental Emergencies, the Victorian Marine Pollution Contingency Plan and any other relevant state or regional marine pollution contingency plans. DELWP is responsible for coordinating the response to wildlife impacted by maritime pollution under the Wildlife Response Plan for Marine Pollution Emergencies. EPA provides enforcement under the Environment Protection Act 1970 and the Pollution of Waters by Oil and Noxious Substances Act 1986. Discharge of ballast water is also regulated through the Environment Protection (Ships Ballast Water) Regulation 2006. Transport Safety Victoria (formerly Marine Safety Victoria) regulates the safe operation of vessels (sailing, human-powered, and motor craft) on all state waters, under the Marine Safety Act 2010.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
41 Understanding this Plan Framework VISION A healthy Port Phillip Bay that is valued and cared for by all Victorians This framework focuses action and investment on priority issues affecting GOALS Bay health. Priorities were identified Stewardship of the Bay is fostered across Health and community enjoyment of the Bay is enhanced The Bay's habitats and marine life through background investigations, community, industry and government by best practice water quality management are thriving and community and agency consultation. PRIORITY Connect and inspire Empower action Nutrients and Litter Pathogens Habitat and Marine Goals, priority areas and actions in AREAS (work together) pollutants (human health) marine life biosecurity this framework are based on:
• what the science has identified as STRATEGIES Improve appreciation Improve collaboration Nutrient and Reduce litter Minimise risks Conserve and Manage risks from key threats to the health of the Bay and understanding of and partnerships across sediment loads do loads to the Bay to human health restore habitats marine pests • what stakeholders and the broader Bay values community, industry not exceed current from pathogens and marine life community want action on and government levels and pollutant loads are reduced • which issues need more attention where practicable or coordination • which actions will have the most impact on protecting long-term Bay health. Following public consultation on this draft Plan, the final Plan will include a more detailed list of sub-actions, with PRIORITY 1.1 Work with Aboriginal 2.1 Build capacity and 3.1 Effectively 4.1 Establish 5.1 Improve 6.1 Monitor Bay 7.1 Prevent clearly identified lead organisations. ACTIONS groups to improve collaborations within maintain existing baseline estimate of understanding habitats at priority introduction Actions will be implemented over the understanding of community and stormwater the volume of litter of links between locations and and dispersal of next ten years, and where possible, Aboriginal cultural industry networks infrastructure and entering the Bay and pathogen improve habitat marine pests will follow an adaptive management values and interests programs to mitigate its impact, including concentrations mapping tools approach. Specific interventions and in the Bay and support loads to the Bay, or accumulation points and human health activities will be aligned to, and in some connections to Country secure via equivalent for swimming and cases delivered by, broader state or means consumption of regional plans and strategies (such shellfish as whole of catchment planning or integrated water cycle management) 1.2 Develop and deliver 2.2 Empower the broader 3.2 Prevent increases 4.2 Support 5.2 Adopt a risk- 6.2 Improve 7.2 Monitor priority programs to inspire community to get more in nutrient loads capability and based approach understanding of locations for early The following sections provide more greater appreciation actively involved in from wastewater capacity building to mitigate sources ecological processes, detection of marine detail regarding each of the priority of the Bay’s values caring for the Bay systems and where programs that target of pathogens found threats and pressures pest introductions areas. This includes background as to practicable reduce litter prevention, in the Bay why the priority area has been chosen, loads of other including reduction gaps in management arrangements, pollutants of microplastics and information on actions to address these priority areas. 1.3 Build understanding 2.3 Support stronger 3.3 Ensure all urban 4.3 Identify and 5.3 Improve 6.3 Improve overall 7.3 Respond rapidly of management partnerships across and rural land use prioritise litter monitoring and extent and condition to new introductions The actions have been drafted through responsibilities and community, industry and effectively controls hotspots around the reporting to of the Bay’s natural of marine pests a consultative process but there is programs for the Bay government to ensure aims impacts from Bay and undertake better detect and ecosystems further opportunity to refine and and its catchment and outcomes are aligned stormwater and prevention and communicate reshape them to achieve the required runoff, and that on-ground stormwater human health risks outcomes. controls are in place management actions from pathogens Potential partner organisations for to manage increases to address sources implementing actions are listed in in loads alphabetical order. Lead organisations and support roles, budget and resources required, and timing of Monitoring, Evaluation, Reporting and Improvement actions are also still to be confirmed.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
42 Understanding this Plan Framework VISION A healthy Port Phillip Bay that is valued and cared for by all Victorians This framework focuses action and investment on priority issues affecting GOALS Bay health. Priorities were identified Stewardship of the Bay is fostered across Health and community enjoyment of the Bay is enhanced The Bay's habitats and marine life through background investigations, community, industry and government by best practice water quality management are thriving and community and agency consultation. PRIORITY Connect and inspire Empower action Nutrients and Litter Pathogens Habitat and Marine Goals, priority areas and actions in AREAS (work together) pollutants (human health) marine life biosecurity this framework are based on:
• what the science has identified as STRATEGIES Improve appreciation Improve collaboration Nutrient and Reduce litter Minimise risks Conserve and Manage risks from key threats to the health of the Bay and understanding of and partnerships across sediment loads do loads to the Bay to human health restore habitats marine pests • what stakeholders and the broader Bay values community, industry not exceed current from pathogens and marine life community want action on and government levels and pollutant loads are reduced • which issues need more attention where practicable or coordination • which actions will have the most impact on protecting long-term Bay health. Following public consultation on this draft Plan, the final Plan will include a more detailed list of sub-actions, with PRIORITY 1.1 Work with Aboriginal 2.1 Build capacity and 3.1 Effectively 4.1 Establish 5.1 Improve 6.1 Monitor Bay 7.1 Prevent clearly identified lead organisations. ACTIONS groups to improve collaborations within maintain existing baseline estimate of understanding habitats at priority introduction Actions will be implemented over the understanding of community and stormwater the volume of litter of links between locations and and dispersal of next ten years, and where possible, Aboriginal cultural industry networks infrastructure and entering the Bay and pathogen improve habitat marine pests will follow an adaptive management values and interests programs to mitigate its impact, including concentrations mapping tools approach. Specific interventions and in the Bay and support loads to the Bay, or accumulation points and human health activities will be aligned to, and in some connections to Country secure via equivalent for swimming and cases delivered by, broader state or means consumption of regional plans and strategies (such shellfish as whole of catchment planning or integrated water cycle management) 1.2 Develop and deliver 2.2 Empower the broader 3.2 Prevent increases 4.2 Support 5.2 Adopt a risk- 6.2 Improve 7.2 Monitor priority programs to inspire community to get more in nutrient loads capability and based approach understanding of locations for early The following sections provide more greater appreciation actively involved in from wastewater capacity building to mitigate sources ecological processes, detection of marine detail regarding each of the priority of the Bay’s values caring for the Bay systems and where programs that target of pathogens found threats and pressures pest introductions areas. This includes background as to practicable reduce litter prevention, in the Bay why the priority area has been chosen, loads of other including reduction gaps in management arrangements, pollutants of microplastics and information on actions to address these priority areas. 1.3 Build understanding 2.3 Support stronger 3.3 Ensure all urban 4.3 Identify and 5.3 Improve 6.3 Improve overall 7.3 Respond rapidly of management partnerships across and rural land use prioritise litter monitoring and extent and condition to new introductions The actions have been drafted through responsibilities and community, industry and effectively controls hotspots around the reporting to of the Bay’s natural of marine pests a consultative process but there is programs for the Bay government to ensure aims impacts from Bay and undertake better detect and ecosystems further opportunity to refine and and its catchment and outcomes are aligned stormwater and prevention and communicate reshape them to achieve the required runoff, and that on-ground stormwater human health risks outcomes. controls are in place management actions from pathogens Potential partner organisations for to manage increases to address sources implementing actions are listed in in loads alphabetical order. Lead organisations and support roles, budget and resources required, and timing of Monitoring, Evaluation, Reporting and Improvement actions are also still to be confirmed.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
43 PRIORITY AREA 1 Connect and inspire
The aim of this priority area is to improve the There is an opportunity to empower the Aboriginal community’s appreciation and understanding of community to strengthen connections with their Bay values - environmental, economic and social. Sea Country, build traditional knowledge across the This includes improving awareness of Aboriginal generations and undertake broader community cultural values, and understanding how to strengthen education. them through environmental management of The people of the Kulin nation lived on and around the Bay. the Bay for thousands of years prior to European Improved awareness of Bay values and of settlement. These people have actively cared for management agencies' roles and responsibilities the Bay and acquired extensive traditional (Priority area 2) will be an important step towards knowledge of its flora, fauna and physical changes. fostering a deeper connection between the Bay It is important that their values, interests and and its residents, broader community stewardship, traditional knowledge of the Bay are recognised and for inspiring greater everyday actions to and that people of the Kulin nation are empowered reduce impacts on the Bay. to continue their role as traditional custodians. The Victorian Coastal Strategy highlights the Aboriginal groups are committed to providing a important role of coastal heritage values in creating secure future for their community by upholding our sense of place and defining who we are. There the dignity of their ancestors, respecting their are past and present traditions of Traditional Owners, Elders and instilling a sense of cultural pride in places created by early and recent settlers, and their children. They are working towards providing customs, celebrations and special characteristics opportunities for their people to connect with and that build community pride and enhance social preserve cultural heritage and to manage lands cohesion (Victorian Coastal Council, 2014). appropriately, including sites of significance. Improving our collective understanding of Aboriginal Research commissioned by the Victorian Coastal cultural values of the Bay is an important feature of Council found that the coast is an important part of this Plan. During community and stakeholder the lives of many Victorians; 84% of those surveyed consultation the project team heard that there is an had made at least 1 day trip to the coast in the past opportunity to improve understanding of Aboriginal 12 months, with the average number of day trips in values by government, industry and the broader the past 12 months being 23 trips (Ipsos, 2012). community.
There are over 400 known sites of Aboriginal significance around the Bay, such as shell middens, camps and burials. Many of these sites are threatened by coastal erosion. Photo - Ashley Matic
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
44 The same study found the general consensus of … More education in the community about the Bay respondents was that the Victorian coast is healthy. as a natural resource and how to protect it and There was also strong agreement with the statement, restore it. Government should work closely with ‘The flora and fauna that live in marine environments community environment groups and support and are important to all Victorians’ (with a mean rating fund them to do citizen science and education for of 8.4 on a zero to ten scale). However, when questioned and in the community. about their knowledge of the marine and coastal environment, respondents gave an overall mean In their assessment of marine values, Hale and rating of 5.3. These responses indicate a high degree Brooks (2015) concluded that the Bay is important of awareness of the importance of the marine and ecologically, economically and socially; however, coastal environment, but less confidence in their the community’s depth of understanding of these understanding or knowledge of it. values (particularly the Bay’s ecological values) is The report on community attitudes also indicated less certain. They suggested that education can that coastal and marine management is generally improve the community’s ability to participate in not ‘visible’ to the community, leaving most unsure management and decision making processes as to what is involved in actively managing these for the Bay. An example of insufficient education environments (Ipsos, 2012). The same report hindering the community’s participation, was indicated that Victorians generally did not feel well prioritising environmental values. The community informed about coastal planning and management. identified whales as a priority over saltmarsh and When people were unsure about who managed the mangroves, despite the fact that, at the site in coast, there was a greater tendency to assume that question, saltmarsh and mangroves provide habitat it was not being well managed (Ipsos, 2012). for many species and improve water quality (Hoye et al. 2008). This highlights the need to educate the Community groups providing submissions, survey community on the context in which decisions are respondents and people at the community listening made and the Bay values they aim to improve. posts also highlighted the importance of increasing awareness of the value provided by the Bay and the role of individuals in maintaining its health. This was highlighted in the online survey with 115 mentions of 'educating and empowering community'. One respondent commented:
Visitors to the beachside listening posts wanted better communication of the Bay's values so more people understand why it needs to be looked after. Photo – Melbourne Water
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
45 Respondents to the online survey indicated a need responsibilities of the various management for improved management of the Bay. Responses agencies. This will help to identify who people indicated that there was confusion over which should contact if they want to report an incident, agencies were responsible for management of the seek information or get more actively involved in Bay. This was highlighted further by requests for caring for the Bay. clearer identification of agencies responsible for An example to consider is developing common key issues such as litter prevention and jet ski signage around the Bay that conveys consistent behaviour. There was also a strong view for the messaging about beach and Bay use and individual need to communicate a whole-of-catchment view behaviour; for example, use of jet skis, disposal of of the various actions being undertaken to protect waste from fish cleaning, and pet exercising. Signage the health of the Bay. As one respondent suggested: might include guidance together with contact details for responsible agencies or organisations. There is a need for community groups from the Similarly, Bay-related information and directives start of the catchment to the Bay to understand provided on council and government agency all the work that is going on to protect the websites should have a common look and feel to catchment. For example, how do stormwater ensure consistent messaging. pollution prevention measures in Doncaster or Warrandyte relate to school education activities The actions in Table 5 apply broadly to the delivery to monitor impacts on Bay beaches? of this Plan. Actions requiring or supporting a specific behaviour change to reduce the impact of a particular issue on the Bay (such as litter) have To improve understanding of Bay values, it is been identified under the relevant priorities important to clearly communicate the roles and elsewhere in this Plan.
Table 5 Proposed actions to ‘Connect and inspire’
Action Potential partner organisations
ACTION 1-1: Work with Aboriginal groups to Registered Aboriginal Parties and other Aboriginal improve understanding of Aboriginal cultural groups values and interests in the Bay and support connections to Country
ACTION 1-2: Develop and deliver programs to CMAs, community groups, councils, DELWP, educational inspire greater appreciation of the Bay’s values and research organisations, EPA, industry, Melbourne Water, Museum Victoria, non-government organisations, Parks Victoria, Registered Aboriginal Parties and other Aboriginal groups, Zoos Victoria
ACTION 1-3: Build understanding of CMAs, community groups, councils, DELWP, EPA, management responsibilities and programs Melbourne Water, Parks Victoria, Registered Aboriginal for the Bay and its catchment Parties and other Aboriginal groups
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
46 ACTION 1-1: Work with Aboriginal groups to improve understanding of Aboriginal cultural values and interests in the Bay and support connections to Country
This action will provide greater acknowledgement • Support opportunities for people of the Kulin of the importance of Aboriginal values and nation to strengthen connections with their contributions to managing the health of the Bay. It cultural values. This will involve Aboriginal groups will build on the work proposed in the government’s leading the delivery of this action and facilitating Water for Victoria plan of recognising and managing participation across all generations within their for Aboriginal values (DELWP 2016). communities. This may involve supporting new business and employment opportunities. This will increase government, industry and community awareness of Aboriginal history and • Undertake educational initiatives for government, cultural values of the Bay to inform future Bay industry and the broader community to improve management. understanding of Aboriginal cultural values and interests in the Bay. An example would be Activities in this action development of digital tools to support the communication of Aboriginal Bay values. • Undertake assessments of Aboriginal cultural values and interests (past and present) in Bay Kulin nation groups will be supported in leading management across different regions. This the delivery of this action and associated activities. may comprise desktop literature reviews and This action will draw on similar activities aimed at on-country interviews with elders. improving understanding of Aboriginal values, such as those being delivered in relation to the Water for Victoria plan and the Healthy Waterways Strategy.
The people of the Kulin nation have actively cared for the Bay and acquired extensive traditional knowledge of its flora, fauna and physical changes. This knowledge can inform future management of the Bay. Bunjil’s Eggs, located on the Bayside Coastal Indigenous Trail, was created by sculptor, Glenn Romanis. Photo - Amber Perry
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
47 ACTION 1-2: Develop and deliver programs to inspire greater appreciation of the Bay’s values
This action will improve understanding and Examples include ‘Kids Teaching Kids’ approaches, appreciation of the Bay’s values across government, and creation of community champions and youth industry and the community. While the social benefits ambassadors. Digital and multimedia tools can also be of the Bay are well regarded by many, the economic created to improve engagement and inspire action. and environmental values (i.e. its diverse marine life) Citizen science will also play an important role in of the Bay are often underappreciated. This action the implementation of this action. An example of will inspire greater environmental stewardship toward a citizen science program is the Two Bays project, the Bay, help the community understand the impact which has been successfully completed over the of their actions on the Bay’s health and encourage last ten summers. The project involves conducting them to act to conserve it. marine research and marine education programs, This will build on learnings from the Desktop Review which provides opportunities for dialogue and of Victoria’s Marine Values (Hale and Brooks 2015), the knowledge sharing on key environmental themes community values research commissioned by the relevant to the Bay. Victorian Coastal Council, and consultation for this Plan. Support will be given to create community and Activities in this action non-government programs and build on existing • Conduct social and economic research to successes in raising community awareness and better understand community values and gaps engagement in issues affecting the Bay’s values. in knowledge. Good program examples are currently being run • Identify and promote the type of programs that by the Dolphin Research Institute, Port Phillip are required, including approaches for connecting EcoCentre, Zoos Victoria and Museum Victoria. to nature and inspiring environmental stewardship. Best practice approaches for connecting to nature • Build on existing awareness and education and inspiring environmental stewardship will be programs around the Bay and its waterways to explored. This will include programs that foster social align with the goals of this Plan (e.g. i sea i care, learning and the building of long-term social capital. Baykeeper, Coastcare).
ACTION 1-3: Build understanding of management responsibilities and programs for the Bay and its catchment
This action will communicate key management • Provide clear information on who to contact if roles and responsibilities to the community. It will there’s a problem via consistent signage and provide the community with confidence that the online information and digital tools. Bay is being managed appropriately. It will require • Develop catchment-based maps and other communicating roles and responsibilities for key communication tools of the various programs, issues, identifying gaps and overlaps that create projects and community groups actively working confusion, and developing a range of communication within each catchment and provide strategies to reach target audiences. communication materials to explain how they Activities in this action interrelate. • Develop a plan to communicate roles and • Establish regular forums on Bay issues for responsibilities for key issues, gaps and overlaps partner agencies and local councils to meet, that create confusion, and suggestions on how to share advice and strategies, and consider reach target audiences (e.g. common signage). progress in various plans and actions.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
48 PRIORITY AREA 2 Empower action
This priority area aims to improve collaboration More than mapping activities, or communication and partnerships across community, industry and (e.g. Landcare network magazine), there is a government to deliver on outcomes of this Plan. need for a resource across the catchment to link all the regional community groups. Hubs like the Similar to ‘Connect and inspire’, the idea of Port Phillip EcoCentre provide the support and empowering groups to take action was supported linkages to on-the-ground community groups. by all stakeholder groups. Stakeholders wanted These community groups typically don’t have more coordination across government and better the resources to connect to the wider network partnerships with community groups. and are practically focussed on activities and There are numerous community groups around the outcomes in their ‘patch’. A resource that can Bay and within the catchments upstream who work travel and link regional hubs and therefore connect tirelessly and voluntarily to improve the health of to local community groups with face-to-face the Bay and its waterways. Helping these groups to communication would provide the connection achieve their local objectives will contribute to the and some inspiration that all efforts across the wider goals and priorities of this Plan. catchment are making a difference. Capacity building typically includes access to technical advice, training, resources and tools on Providing adequate support to local community best practice science and management techniques, groups will also enable these groups to be active access to strategic advice on group administrative across a number of issues and provide more interesting matters, governance and where to source funding, opportunities to attract more volunteers. As one key and fostering of peer-to-peer learning across groups. stakeholder group noted during the consultation: Many capacity building programs exist to support Supported citizen science activities also need community groups and individual volunteers. to have a multiple focus – not everyone wants Examples include Coastcare, Waterwatch, Landcare, to count litter as their interaction with the Port Phillip EcoCentre, Baykeeper, Riverkeepers, environment. This provides flexibility in the choice Reefwatch (within the Victorian National Parks of activity with the number of people involved Association), and programs run by other and required. For example, a section of beach management organisations such as the CMAs. can be measured for erosion, sea level rise, These programs have built a high degree of trust micro-plastics, litter and inter-tidal species in with their target audience over many years, which is one activity. This enables different groups to vital for successful community capacity building. rotate through multiple activities, or the number This action will establish networks for supporting of activities can be adjusted to those where more citizen science programs and local community frequent data is worth recording, dependent on groups, with consideration given to establishing the numbers involved. Coastal erosion may be regional support hubs. This could be undertaken measured from the widest and narrowest points on a catchment-by-catchment basis and help to on the beach annually, inter-tidal species may be identify any gaps in the existing network of capacity collected as a school holiday program educational building programs and the best mechanisms to activity, and beach litter data may be recorded address these. Region-wide support programs are more regularly (e.g. monthly) for a database. important but local community groups also need access to catchment-based support to provide A number of key stakeholder groups also suggested connections to other local community groups and the need for consistent and rigorous methods for on-ground projects. As one key stakeholder group citizen science and opportunities to develop innovative noted during the project consultation: digital tools (such as apps) to support citizen science and on-ground management activities. For example, apps have been developed to provide field guides for identification of native flora and fauna and pest species, for entering field data, and displaying easy to access environmental reports. An example is Birdlife Australia’s ‘Bird Conservation Portal’ for citizen science data collection (web-based) and analytics.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
49 Industry has the potential to reduce impacts on Bay outreach activities of the CRC for Water Sensitive values by adopting better management approaches Cities, which are providing secondary benefits for and operations, but will need assistance in the form reducing pollution to the Bay. Melbourne Water also of capacity building to achieve these improvements. provides support to local councils through their The term 'industry' covers all organisations whose Living Rivers Program and to farmers through their activities impact Bay values, such as government Rural Land Program. Corangamite CMA and Port agencies, local councils, water corporations, Phillip and Westernport CMA provide capacity research institutes; and businesses (including land building support to rural landholders to reduce development and agriculture). Industries' capacity their pollution run-off to waterways. There is an building needs are typically similar to those opportunity to build upon and enhance these mentioned previously for community groups, such programs, and/or establish new programs to align as access to technical guidelines, tools, training and with the goals and priorities of this Plan. Strong advice, and opportunities for peer-to-peer learning partnerships with peak industry bodies will be and sharing knowledge. needed to ensure success. There are a number of existing industry capacity The actions in Table 6 to deliver on the outcome building programs focused on improved urban of this priority area have been identified through stormwater and integrated water cycle stakeholder consultation and review of other management such as the Clearwater program relevant policies and plans. hosted by Melbourne Water and the industry
Table 6 Proposed actions for ‘Empower action’
Action Potential partner organisations
ACTION 2-1: Build capacity and collaborations CMAs, community groups, councils, DELWP, EPA, within community and industry networks Melbourne Water, Museum Victoria, non-government environment organisations, Parks Victoria, peak industry bodies, research institutes.
ACTION 2-2: Empower the broader community CMAs, community groups, councils, DELWP, EPA, Melbourne to get more actively involved in caring for Water, Parks Victoria, educational and research the Bay organisations, industry, non-government organisations, Registered Aboriginal Parties and other Aboriginal groups, Zoos Victoria
ACTION 2-3: Support stronger partnerships CMAs, councils, DELWP, EPA, Melbourne Water, Parks across community, industry and government to Victoria, Registered Aboriginal Parties and other ensure aims and outcomes are aligned Aboriginal groups, and broader government, industry and community organisations
ACTION 2-1: Build capacity and collaborations within community and industry networks
This will support the long-term health of the Bay Activities in this action by improving community and industry’s ability to • Establish region-wide and catchment-based contribute to Bay management and play a vital role frameworks for supporting citizen science in helping to achieve the goals of this Plan. programs and local community groups, including Capacity building needs of community and industry consideration of regional support hubs. groups typically include access to technical advice, • Support existing community and industry training, resources and tools on best practice capacity building programs and enhance where science and management techniques; access to necessary to align with the goals and priority strategic advice on group administrative matters, areas of the Plan. governance and where to source funding; and fostering of peer-to-peer learning and networks • Develop innovative new tools, and expand use between groups. of existing tools, to support citizen science and on-ground community action.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
50 ACTION 2-2: Empower the broader community to get more actively involved in caring for the Bay
This action will empower a greater cross-section of information on how individuals can help care for the community to get more actively involved in the Bay; for example, the Seal the Loop Bins by caring for the Bay. The focus will be on encouraging Zoos Victoria, AGL Marine Response Unit, and Bin more people to get involved in on-ground activities, not Bay by the Australian Marine Mammal Foundation. and educating people on the impacts of certain There is also an opportunity to build on these behaviours on Bay values. programs and others to ensure the community has access to sufficient information to empower actions According to the Victorian Coastal Council’s report that align with the goals of this Plan. on community attitudes, one in three respondents expressed interest in volunteering to help improve Activities in this action and protect the coast (Ipsos, 2012). This action will • Identify needs and gaps in existing aim to maximise this desire to get involved. communication materials and strategies. A challenge highlighted through consultation was • Develop and clarify information on how to get that some community members are unable to involved in conserving the Bay, building on volunteer their time to participate in citizen science existing programs, campaigns and other projects or on-ground community-based activities, communication initiatives. but they are interested in undertaking everyday actions in and around their home and workplaces • Communicate achievements of community to help care for the Bay. This highlights the need to actions more widely to attract interest and promote existing programs that provide inspire action.
ACTION 2-3: Support stronger partnerships across community, industry and government to ensure aims and outcomes are aligned
This action will foster stronger partnerships across Activities in this action government, industry and community groups • Identify mechanisms for ensuring strong working to improve the health of the Bay and its collaboration between community, industry and waterways. There are many initiatives being government organisations in the implementation undertaken by a range of groups and there is an of this Plan. opportunity, need and desire for a more joined-up approach for better management of the Bay. This • Improve mechanisms to ensure greater was a strong theme from the consultation. Many representation of Aboriginal groups in the local community groups expressed a desire to feel implementation of this Plan. part of something bigger and receive • Identify and invest in opportunities to improve acknowledgment of their contributions to the monitoring, data sharing and reporting of baywide management effort. activities being undertaken across community, industry and government.
Cleanup day at Kerford Road Pier, Albert Park, organised by Tangaroa Blue Foundation. Over 75% of what is removed from our beaches is made of plastic. Photo: Tangaroa Blue Foundation (http://www.tangaroablue.org/).
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
51 PRIORITY AREA 3 Nutrients and pollutants
The aim of this priority area is to take action to There are hundreds of stormwater drains that ensure that nutrient and sediment loads flowing discharge directly to the Bay during and immediately into the Bay do not exceed their current levels after rainfall events. Other stormwater drains and other pollutant loads are reduced where discharge into the rivers and creeks across the practicable. catchment, which then discharge to the Bay. The nutrients nitrogen and phosphorus are elements, The Yarra River contributes the highest nutrient and are essential building blocks for plant and and sediment loads into the Bay compared with animal growth. They are conveyed to the Bay from the other rivers. Nutrients and sediments from the catchment, atmospheric and oceanic sources. The Yarra typically impact along the eastern shoreline Bay is considered to be nitrogen limited because of the Bay (the typical flowpath of the Yarra plume) the amount of phosphorus available in the Bay is with concentrations fanning into the central part in excess of the amount needed for plant growth. of the Bay over time due to currents and wave Therefore the amount of nitrogen that comes into re-suspension of finer sediments. the Bay controls how much plant growth can occur. Higher loads of sediments can reduce the amount When there is too much nitrogen the system is of light available for seagrass growth and may also considered to be eutrophic and there is excessive smother nitrogen cycling bacteria living on the algal growth resulting in persistent algal blooms. bottom of the Bay (which are crucial for a healthy Other pollutants include sediments and toxicants, functioning Bay). Sediments also carry toxicants which are further broken down to include heavy into the Bay. Most toxicants are sediment-bound metals, pesticides, industrial chemicals, and chemicals and higher loads directly affect fish and of emerging concern (such as endocrine-disrupting invertebrates in inshore areas and affect marine compounds, pharmaceuticals and personal care mammals and waterbirds (through the food chain). products). Management actions implemented since the 2001 Freshwater flows carry nutrients, sediments and Plan have stabilised increasing trends in discharges other pollutants sourced from various activities of nutrient and sediment loads to the Bay (Jacobs and within the catchment. These flows include runoff HydroNumerics 2015a, b). Monitoring by the EPA has from properties and roads, wastewater discharges shown no significant deterioration of water quality or from treatment plants, and seepage of contaminated increased occurrence of algal blooms over the groundwater. Up to 80% of the annual load of past decade. nutrients and sediments from the catchment is delivered via runoff during high flow storm events.
Installing water sensitive urban design features, such as raingardens, can reduce the contribution of stormwater pollutants to waterways and the Bay. Photo – Melbourne Water
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
52 However, forecast population growth and changes • Ecological functions are tightly tuned to in land use, together with climate change impacts nitrogen. Obtaining direct evidence of ecological are predicted to increase nutrient and pollutant effects from increased nitrogen is complex. For loads to the Bay if no further action is taken to example, nutrient loads in the north of the Bay reduce these loads. are thought to be affecting the diversity and condition of rocky reefs, leading to ‘urchin barrens’ This Plan considers nutrients and pollutants to be a (Carnell and Keough 2014). Conversely, reduced priority area for enhancing the Bay’s health. Key points inputs of nitrogen during the 1998-2010 drought drawn from the background investigations include: coincided with observed declines in seagrass • Population growth and climate change will beds and reduced fish recruitment (Parry and increase nutrient, sediment and pollutant loads. Hirst 2016). Hence, maintaining the Bay’s ecological Estimates based on catchment modelling are function is not as simple as removing all nitrogen that nitrogen loads to the Bay will increase by loads, but rather obtaining a balance that sustains about half by 2050 unless actively managed. productivity and avoids eutrophic conditions. Future scenarios indicate that the Western • Western Treatment Plant annual loads of Treatment Plant remains the major contributor nitrogen should not exceed 3,100 tonnes. of nitrogen to the Bay, and the Yarra catchment Nitrogen loads from the Western Treatment Plant the major contributor of sediment to the Bay. are forecast to increase beyond the previous The Werribee and Dandenong catchments are Plan's annual limit of 3,100 tonnes, to 3,800 predicted to have the greatest proportional tonnes by 2036/37, and 4,900 tonnes by 2051/52 increase in nutrient and sediment loads due to as a result of increases in sewage flows. However, future urban development. Other pollutants will annual loads will vary significantly with rainfall. also increase as a result of increased stormwater Years of above average rainfall will provide runoff (and increased production and use of greater challenge for keeping loads below the toxicants in the catchment). 3,100 tonne limit. The water quality modelling • Higher loads of nitrogen will increase the risk of showed that when 3,100 tonne limit is exceeded, algal blooms and nearshore impacts. Modelling chlorophyll ‘a’ in Hobsons Bay exceeds the SEPP has shown that a nitrogen load of 15,000 tonnes (Waters of Victoria) water quality objective of per year would result in algal blooms in the 4 , which impacts beneficial uses. northern part of the Bay for most of the year. • Managing catchment inputs is as important as Near shore waters are likely to ‘tip’ at this level, managing discharges from Western Treatment meaning the nitrogen cycling processes may Plant. The efficiency of the nitrogen cycling cease to function permanently. The science process across the Bay is impacted more by synthesis (and earlier 1996 Port Phillip Bay changes in Yarra/Maribyrnong flows than Environmental Study) recommended that nitrogen discharges from the Western Treatment Plant. loads to the Bay should remain below 6000 tonnes This is because the process can be impacted by per year. As loads increase beyond this level, risks changes in climatic conditions, phytoplankton to Bay values increase including the potential for dynamics, and other factors that affect benthic more frequent and intense algal blooms. Modelling microbial processes. Loads from rivers are also has shown that when nitrogen loads from the highly variable in comparison to treated Western Treatment Plant move clockwise around wastewater discharges. Monitoring of nitrogen the Bay and combine with loads from the Yarra, cycling in Hobsons Bay has shown that the algal blooms are more likely to occur along the efficiency of the process is reduced following eastern beaches, which will have significant high flow events. When this occurs there is impacts on recreational and amenity values. increased likelihood of algal blooms. • SEPP (Waters of Victoria) water quality • Better knowledge of nutrient loads, both overall objectives will be exceeded if no action is taken and between nitrogen species, can help target to mitigate increased loads of nitrogen. Water management actions. Analysis of the different quality modelling showed that when nitrogen forms of nitrogen in waterways can indicate loads exceed 6,000 tonnes per year, 75th the likely source. This can then inform targeted percentiles values for chlorophyll ‘a’ in Hobsons interventions. For example, in Queensland Bay will exceed the SEPP (Waters of Victoria) nitrogen loads in rivers that discharge to the water quality objective of 4 . Great Barrier Reef are estimated to contain 80-85% of anthropogenic dissolved inorganic nitrogen, which comes from fertiliser. This knowledge has helped focus management actions on changing farming practices to reduce nitrogen loads to the reef.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
53 • Planning mechanisms can be used to control The target also assisted more broadly in impacts of stormwater on waterway and Bay communicating the need for, and achieving the health. Clause 56 of the Victoria Planning required reductions. Provisions is the main mechanism for managing The desired 10-year outcome statement for nutrients the impact of stormwater in new residential and pollutants in this Plan (that ‘the nutrient and developments (it is not applied to development in sediment loads flowing into the Bay do not exceed areas that connect to existing drainage systems). their current levels and other pollutant loads are Clause 56 requires the implementation of best reduced where practicable’) translates to a zero practice environmental management (BPEM) increase in nitrogen and sediment loads, and a need guidelines for stormwater quality management. to actively mitigate forecast increases. For nitrogen This includes retention of typical urban loads of the level of mitigation equates to about 2,500 tonne total nitrogen (45%), total phosphorus (45%), total reduction over 30 years or an 800 tonne reduction suspended solid (80%) and litter (100%). The over the next 10 years. guidelines have been important in promoting greater adoption of water sensitive urban design, Actions will be required to mitigate forecast increases such as wetlands and bio-retention systems, in in loads from wastewater systems and stormwater. new urban areas. However, for existing urban and Reducing loads will ensure that the risk of algal industrial areas there is inconsistent application blooms is minimised, and will allow marine of improved stormwater management. ecosystems to function with the current levels of Proportionally this area is far greater in size than diversity of plants and animals. Actions to reduce the area of new urban development, and as such loads of nitrogen and sediments in stormwater will offers significant opportunity to reduce loads to also have benefits for values in waterways within waterways and the Bay. the catchment. • Denitrification continues to be a critical process The final Plan will include specification of the within the Bay, and should continue to be nitrogen and sediment load mitigations required for monitored. Denitrification at both regional and each major catchment. This will confirm whether all baywide scales remains a highly efficient process waterways need to maintain loads at current levels at removing nitrogen from the Bay, and continues or whether different splits are needed to achieve to assist in the maintenance of water quality. the baywide outcome. • Long-term impacts of toxicants on ecosystem To achieve the nitrogen and sediment targets in components is a knowledge gap. Toxicants are a sustainable manner will require a paradigm shift generally below guideline levels in the Bay, with for stormwater management. increased levels found in a few localised areas. Concepts of total catchment management and its However, there is a need to better understand role in managing urban runoff as discussed in the the short and long-term impacts of chemicals of early 1990s (Collett, 1992) have evolved into current emerging concern, such as endocrine-disrupting concepts of water sensitive urban design and compounds, pharmaceuticals, flame retardants, integrated water cycle management. However, the pesticides (other than organochlorines), and key elements of managing the problem at source microplastics. still require further development. The individual’s Setting nutrient and pollutant targets opportunity to influence the outcome is lost with The 2001 Plan included a 1000 tonne reduction in large and costly end-of-pipe solutions. the annual load of nitrogen by 2006. This was to be To improve outcomes in the Bay, there is a achieved by reducing annual loads from Western need to address runoff at the source. Regulatory Treatment Plant by 500 tonnes and the catchment arrangements and incentives supporting local waterways annual load by 500 tonnes (with a split solutions (involving developers and individuals) can of 350 tonnes from the Yarra/Maribrynong Rivers drive improved behaviours at the allotment scale. and 150 tonnes from other waterways but focusing For urban runoff this may mean altering drainage on the Dandenong catchment). To allow for reporting charges or building regulations to ensure that on progress, a calculation of the baseline levels (for runoff can be sustainably managed and retained the period 1991–1995) was confirmed immediately on the property. This approach would reduce following the release of the 2001 Plan. nutrient and pollutant loads to the Bay, and minimise Having a clearly defined baywide target and investment in large scale infrastructure. a split between sources allowed agencies to implement specific actions.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
54 The actions proposed for nutrients and pollutants (Table 7) have been designed to address reduction targets by strengthening existing controls for managing loads from both wastewater systems and stormwater. These actions address key knowledge gaps, develop methods of tracking performance, support catchment-based decision making, and align with the state’s broader directions in the Water for Victoria plan.
Table 7 Proposed actions for ‘Nutrients and pollutants’
Action Potential partner organisations
ACTION 3-1: Effectively maintain existing Councils, DELWP, EPA, Melbourne Water, and other stormwater infrastructure and programs to asset owners mitigate loads to the Bay, or secure via equivalent means
ACTION 3-2: Prevent increases in nutrient loads Councils, DELWP, EPA, Melbourne Water, other water from wastewater systems and where corporations practicable reduce loads of other pollutants
ACTION 3-3: Ensure all urban and rural land CMAs, councils, DELWP, Melbourne Water use effectively controls impacts from stormwater and run-off and that controls are in place to manage increases in loads
Yarra River plume after large rainfall event in February 2011. Photo – Fairfax Syndication
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
55 ACTION 3-1: Effectively maintain existing stormwater infrastructure and programs to mitigate loads to the Bay, or secure via equivalent means
This action will check that reductions in nutrient, Part of the assessment must determine if wetland sediment and pollutant loads achieved under the development and maintenance is the most cost- 2001 Plan can be sustained. It will include an effective way to achieve nitrogen and sediment assessment of existing stormwater management reduction targets for the Bay. This issue is also infrastructure, and evaluation of cost-effective compounded by having limited capacity to build means to achieve load reductions to the Bay. new large-scale wetland systems in existing urban areas. Significant investment has been made as a result of the 2001 Plan by water corporations, local This issue is not limited to wetlands managed by councils, land developers and road builders in Melbourne Water; however, these selected wetlands constructing wetlands and other assets to reduce provide an opportunity to assess their performance the environmental impact of stormwater. This for nutrient and sediment reduction, and to gain includes constructed wetlands built by Melbourne insight as to how best to manage these types of Water and other stormwater assets built by assets into the future. developers and local councils (such as wetlands, raingardens and stormwater harvesting schemes). Activities in this action However, there has been limited evaluation as to • Undertake audit of selected stormwater whether individual assets are achieving their design management assets to assess whether they are intent for nitrogen and sediment load reduction. meeting their design intent for nutrient, sediment For nutrient and sediment reduction targets to be and pollutant reduction. sustained over the next 30 years, the effectiveness • Identify other stormwater management assets of these constructed wetland systems needs to be within the catchment and classify their assessed, and maintenance undertaken to ensure performance for nitrogen and sediment their performance is sustained. reduction – this will include large, medium and small-scale systems operated by Melbourne Water, local councils and other land managers. • Develop and implement an investment plan for remediating those assets that are failing to meet their design intent and, where appropriate, building new infrastructure. • Continue to characterise contaminants of emerging concern within stormwater and methods to reduce these contaminants.
Constructed wetlands require regular maintenance to ensure that they remove nutrients, sediments and other pollutants from stormwater. Photo – Melbourne Water
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
56 ACTION 3-2: Prevent increases in nutrient loads from wastewater systems and where practicable reduce loads of other pollutants
This action will address the challenges of urban to be upgraded so the ammonia discharge growth and ensure that cumulative loads of concentration of 10 mg/L and annual total nutrients to the Bay from wastewater systems do nitrogen loads of 3,100 tonnes are not exceeded. not exceed current levels. Additionally, this action Upgrades may also be required for local aims to ensure that treatment processes continue wastewater treatment plants operated by other to be improved where practicable to reduce the water corporations, especially in Melbourne’s urban discharge of toxicants to receiving waters. This will growth corridors to the north and northwest of include large and small wastewater treatment Melbourne. At a baywide scale, reductions from plants, and areas serviced by septic tanks. local treatment plants are relatively small, but will The majority of urban areas within the Bay’s provide local benefits as well as contribute to the catchment are connected to sewerage systems. overall targets for the Bay. Sewage and trade waste from properties is In areas where septic tanks and other onsite transferred through a network of pipes (sewers) wastewater systems are impacting on water quality to wastewater treatment plants. A combination in receiving waters, stronger enforcement may be of mechanical and biological processes cleans required to bring these systems into compliance. the wastewater to a standard suitable for reuse Alternatively, offsite treatment or networked (recycling) or discharge to the environment. sewerage systems may need to be built. Properties that are not connected to sewerage systems operate onsite wastewater systems (e.g. septic tanks), which can collectively contribute Activities in this action to nutrient and pollutant loads to the Bay via • Confirm forecast volumes of nitrogen and groundwater systems and waterways. Treatment other pollutants discharged from wastewater plants have operating licenses issued by EPA that treatment plants and areas with onsite set the allowable discharge quality and quantity to wastewater systems, and assess adequacy receiving environments. Onsite systems (e.g. septic of investment plans to address growth. tanks) are regulated by councils. • Implement compliance programs in areas serviced The Western Treatment Plant operated by Melbourne by onsite wastewater systems (e.g. septic tanks) Water discharges 130 to 145 gigalitres of treated to ensure systems are operating appropriately, wastewater annually. Other local treatment plants and their discharge has minimal impact on that discharge to the Bay or waterways contribute receiving waters. These programs will inform about 15 gigalitres of treated wastewater per year. the need and timing of investment in offsite treatment options. The EPA license for Western Treatment Plant is concentration-based, with a maximum discharge • Obtain discharge monitoring data from individual flow. As the population grows, the sewage flows wastewater treatment plants to assess against to the plant will increase, especially in wet years. targets and to compile cumulative annual loads Currently the plant can treat up to a certain flow to the Bay. and load; beyond this the concentrations and • Continue to characterise contaminants of volume of nitrogen discharged to the Bay will emerging concern within wastewater and increase. Eventually treatment systems will need methods to reduce these.
Sewage flows to Western Treatment Plant are forecast to increase in line with population growth. Further upgrades will be required to ensure the volume of nitrogen discharged does not exceed current limits. Photo – Melbourne Water
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
57 ACTION 3-3: Ensure all urban and rural land use effectively controls impacts from stormwater and run-off and that controls are in place to manage increases in loads
This action will investigate the suitability and This review could be expanded to consider coverage of planning mechanisms and building management of stormwater to reduce nutrient and regulations for managing stormwater from urban, pollutant loads concurrently. industrial and rural land. It is likely that new planning mechanisms will be Activities in this action supported by integrated water management plans • Review performance of existing controls (planning being considered by the State Government as part mechanisms, regulations and standards) and of the new Water for Victoria plan. Mechanisms are identify potential improvements – includes likely to be place-based and reflect the varying health spatial analysis to support classification of of waterways discharging to the Bay. controls and prioritisation for investment. It is compulsory under Clause 56 of the Victoria • Work with regulatory agencies, local councils and Planning Provisions to design and manage urban stakeholders (includes urban and industrial land stormwater management systems for all new developers) to improve understanding of residential subdivisions to meet current BPEM requirements and to better enforce standards. objectives. However, it is unclear how well developers • Pilot new management approaches and evaluate are implementing BPEM objectives, and whether their effectiveness. built assets are performing as required. • Design and implement an integrated program Even with effective, widespread adoption of BPEM of management actions and planning controls. guidelines, forecast urban growth and climate change will result in increased loads that may make Actions within this priority area will require it difficult to maintain current Bay health. This is development of a framework for reporting loads of because the guidelines only set standards to nitrogen and sediments, and to support continued reduce a proportion of the additional flows and improvement in effective management practices. loads that would reach waterways in comparison to flows and loads from undeveloped land. These Having a consistent and defensible method for residual flows and loads require planning mechanisms estimating loads to the Bay will provide stakeholders and investment in alternative stormwater control with confidence that investment in management systems to manage the shortfall of BPEM. actions is justified. Without this, it will be difficult to track the progress of actions implemented through For areas not subject to Clause 56, the application this Plan. of improved stormwater management is inconsistent and varies between councils. These areas include The catchment and Bay model developed by Jacobs existing residential, industrial and commercial and and HydroNumerics (2015a, b) will require further rural land. Some councils use alternative planning development so that it can be used for monitoring mechanisms to direct developers to implement and evaluating progress towards meeting load water sensitive urban design and to achieve BPEM reduction targets and water quality outcomes. This or better objectives. As such, development of includes better calibration of the catchment model, consistent stormwater management approaches better calibration/verification of chlorophyll would reduce nutrient, sediment and pollutant predictions, and further testing to determine the loads to waterways and the Bay. spatial and temporal sensitivity of denitrification estimates to changing nitrogen loads. Action 14c in the Victorian Floodplain Management Strategy is to review how planning provisions, Stakeholders have also commented that ideally the particularly Clause 56, could better manage the models should be developed to enable catchment- potential urban stormwater flood impacts from infill based decision making within an adaptive development, urban renewal and non-residential management framework. development within established areas.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
58 PRIORITY AREA 4 Litter
The aim of this priority area is to deliver actions In 2014/15, EPA issued over 13,000 fines, with 60% that reduce the amount (volume and count) of of infringement notices issued for lit cigarettes. litter delivered to the Bay to conserve amenity The City of Melbourne is also actively involved in and marine life. managing cigarette butt litter through installation of special butt bins in high-use areas and collection Litter constitutes any solid or liquid domestic or of butts for recycling into shipping pallets. commercial waste that is deposited inappropriately. The community perceive litter as harmful (non- Currently, litter management in the Bay is a mix biodegradable and/or hazardous) and less harmful of clean-up and prevention activities. Bayside (biodegradable) (VLAA 2014). Harmful litter includes councils (in some cases with the assistance of cigarette butts, plastics, nappies, broken glass, dog community groups and committees of management) faeces, and fast-food wrappers. Non-harmful litter are responsible for removing litter along the includes paper, cardboard and fruit scraps. Plastics, foreshores, for removing suburban litter, and reducing particularly microplastics and nurdles, are a the likelihood of litter being discharged to the Bay. concern to the community (VLAA 2015). While most activities focus on capturing litter (e.g. The 2001 Plan incorporated litter into the nitrogen through gross pollutant traps, street sweeping, bins program, where litter reduction benefits were in public places, beach sweeping), some councils gained through broader stormwater management have developed litter prevention strategies to initiatives. For example, government funded the reduce the incidence of littering. installation of gross pollutant traps through the To assist more councils and the community to reduce Victorian Stormwater Action Program (DSE 2003). littering behaviour, the Victorian Government has According to the 2014/15 National Litter Index, developed the draft Community and Business Waste industrial and retail sites are the most littered sites Education Strategy 2015–2020 (led by Sustainability in Victoria. Industrial sites were noted as generating Victoria). The draft strategy identifies six strategic the highest volume of litter, while retail sites directions in relation to waste and litter. Strategic generated the highest count of litter items. direction four is to ‘reduce litter and illegal dumping’. Beaches were next on the list with moderate In addition the Metropolitan Waste and Resource numbers and volumes of litter. Other public places Recovery Group manages the Litter Hotspots and recreational sites were associated with smaller Program, as part of A Cleaner Yarra River and Port numbers and volumes of litter. Overall the index Phillip Bay – A Plan of Action. The program provides shows a continuing trend of reduced rates of funding to local governments, businesses and littering across Victoria. However beaches are still community partnerships to target priority litter prominent locations for the accumulation of litter, areas in the Bay and the Yarra River. and are concern for the community. Beach Patrol, a volunteer-based organisation who organise litter clean-up days at twenty Bay beaches, have collected 18,660 kg of rubbish since 2009 – 2,543 kg for the first quarter of 2016. From this, 75,217 cigarette butts were collected (Beach Patrol 2016).
Litter on the bank of the Yarra River. Much of the litter on our streets washes into drains that flow to the Bay. Photo – Tangaroa Blue Foundation (http://www.tangaroablue.org/)
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
59 In coordinating best practice litter prevention, RESEARCH the Victorian Litter Action Alliance (VLAA) has developed a best practice model (Figure 13) based
on behaviour change theory and built around the R E TH following three elements: E IN G C O E T N T G • Education: Includes information, incentives and IV N I E communication to explain the issues associated K S R EDUCATION with litter and encouraging how to correctly O W dispose of litter appropriately in any given INFRASTRUCTURE situation. • Infrastructure: Includes bins and signs in appropriate public places to enable people ENFORCEMENT to correctly dispose of litter.
• Enforcement: Provides consequences and G OO N penalties for those that litter and provides a D TIO COMMUNICA deterrent and powerful message that littering M O ON NI TI is unacceptable. TOR LUA ING AND EVA An evaluation of the Litter Hotspots Program found that most projects followed the VLAA best-practice model for litter prevention, with community projects Figure 13 Victorian Litter Action Alliance best practice model largely focusing on ‘education’ and council projects focusing more on ‘infrastructure’ and ‘enforcement’. It was also deemed that many inter-organisation the Bay is being conducted at RMIT and the EPA. relationships were developed and strengthened. The Litter Hotspots Program has funded initiatives The program also improved the amenity of public such as Operation Clean Sweep (led by Tangaroa spaces that impact upon the water quality of the Blue Foundation) to educate and change practices Yarra River and the Bay (Alluvium 2016). in managing loss of nurdles from manufacturing Since the 2001 Plan, research and monitoring has sites. Additionally, the Federal Government has commenced into the impact of microplastics in the initiated a voluntary phase-out, by July 2018, of Bay. Citizen science projects have sampled microbeads in personal care products, with the sediment for microplastics (Two Bays and the proposal to ban microbeads if voluntary adoption Clean Bay Coalition project). Research specific to rates are low.
Beach clean-up day at Altona organised by Melbourne Water and the Bay Keeper (http://www.bay-keeper.com/). Photo – Melbourne Water
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
60 This Plan considers litter to be a priority area. The Various sources of litter were mentioned including background investigations, risk assessment and industry, anglers, smokers, visitors and festivals/ consultation support this decision, as outlined here: events. Stakeholders and the community were concerned about the impact of litter on both • Litter poses a risk to Bay values. The water quality and the cleanliness of beaches. environmental risk assessment identified litter (including microplastics) as a high risk to Bay • Littering behaviour has improved, but is still a 3 values. The assessment noted large amounts of significant issue. In 2013/14, 10,240 m of litter, silt litter are still being discharged to the Bay, affecting and debris were removed from waterways around the amenity and use of beaches and marine life. Melbourne (Melbourne Water 2014). The Victorian Litter Report 2013 notes that littering behaviour, • Litter is a threat to marine life. The science although less than in 2003, plateaued between knowledge synthesis reiterated the threat of litter 2011 and 2013. Littering behaviour at waterfront to marine life that was noted in the environmental precincts and easement sites improved, while risk assessment. The impact of large plastic littering behaviour at beaches, markets, public material on marine life such as birds and seals is buildings, parks, malls and shop areas deteriorated well established. However, research is increasingly (Sustainability Victoria 2014). highlighting microplastics as a major issue for litter management. Smaller sized plastic particles • Litter clean-up costs are significant. In 2012–2013, can be ingested by marine life and have a large litter and street cleaning maintenance cost surface area to absorb and release toxicants. Victorian local councils over $94 million (Sustainability Victoria 2015). The majority of this • Litter loads to the Bay are likely to increase with cost was directed at clean-up activities. population growth. The science knowledge synthesis and environmental risk assessment The actions proposed for this Plan for litter (Table 8) both emphasised the effect population growth have been designed to connect and strengthen the and increased urbanisation will have on litter efforts already proposed as part of the government’s loads to the Bay. draft Community and Business Waste Education • Stormwater is the primary vector for litter Strategy, as well as build on the efforts of community entering the Bay. It was estimated that up to 95% groups and government agencies, particularly: of litter polluting the Bay is transferred through • Link-in with existing funding opportunities to the drainage network. The 1991–1993 Tagged address knowledge gaps, particularly for Litter Study showed that potentially all litter that microplastics. enters the drainage network could reach the Bay • Support current efforts to change littering (Melbourne Water 1993). However, the final volume behaviour. reaching the Bay is dependent on the characteristics • Support and strengthen existing efforts to clean of the drain (natural or constructed), proximity to up grossly littered areas around the Bay and at the Bay, and interventions (litter traps). Travel time strategic points on waterways that discharge to is related to size of rainfall events and flow the Bay. patterns within waterways. • Improve monitoring and reporting of catchment • Litter is a concern to the community. In the litter loads. online survey, litter was mentioned 373 times in free text comments; plastic, microplastic and nurdles were mentioned 167 times.
Table 8 Proposed actions for ‘Litter’
Action Potential partner organisations
ACTION 4-1: Establish baseline estimate of the volume of litter Community groups, councils, DELWP, entering the Bay and its impact, including accumulation points EPA, Melbourne Water, Parks Victoria, Sustainability Victoria, VLAA
ACTION 4-2: Support capability and capacity building programs Community groups, councils, DELWP, with a focus on targeting litter prevention, including reduction of EPA, Melbourne Water, Parks Victoria, microplastics Sustainability Victoria, VLAA
ACTION 4-3: Identify and prioritise litter hotspots around the Bay Community groups, councils, DELWP, and undertake prevention and on-ground stormwater EPA, Melbourne Water, Parks Victoria, management actions to address sources Sustainability Victoria, VLAA
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
61 ACTION 4-1: Establish baseline estimate of the volume of litter entering the Bay and its impact, including accumulation points
This action will improve knowledge of litter sources enable better reporting to the community of progress and volumes of litter entering the Bay and address and achievement in litter reduction strategies. key knowledge gaps in understanding the impact This action will commence with a review of methods of litter on Bay values. suitable for establishing baseline volumes and The volume of litter within the Bay, including that distributions within the Bay and on beaches. The which is buried in the sediments, is a knowledge review will draw on the research and monitoring gap. There is also a need to improve understanding being undertaken by community-based groups of major sources of litter and the types of land use such as Port Phillip EcoCentre and Baykeeper. that are having the greatest impact on litter loads This action will also provide an opportunity for discharged to the Bay. some of the knowledge gaps of litter impacts to Having good measurements of the types, volume be addressed. Particularly, knowledge gaps on the and sources of litter, and generation rates will help impact of microplastics on marine life. It is also to identify hotspots. This data will also support an opportunity to build partnerships with existing investment in capacity building and enforcement community groups that are currently collecting, measures. Creating a baseline for litter, will also or have previously collected, data on litter loads.
ACTION 4-2: Support capability and capacity building programs with a focus on targeting litter prevention including reduction of microplastics
This action will support capacity building As stated previously, the government has released programs that will lead to a reduction in generation its draft Community and Business Waste Education of litter and littering. The focus will be on litter Strategy 2015–2020, which includes funding for the that enters the Bay through stormwater drains, Victorian Litter Plan. This includes the delivery of creeks and rivers. the Litter Innovation Fund which provides the opportunity for organisations to apply for grants for innovative solutions to litter management.
ACTION 4-3: Identify and prioritise litter hotspots around the Bay and undertake prevention and on-ground stormwater management actions to address sources
This action will involve cleaning-up Bay beaches to the Bay. This action may involve Melbourne and preventing litter through on-ground activities. Water working in partnership with councils to install Changing littering behaviour is an ongoing litter traps on waterways and drains identified as challenge, which requires continued effort. In the major contributors to litter on beaches. interim, it is important that beaches are kept clean. This action will support councils, businesses and This action was identified through stakeholder community partnership projects to prevent litter consultation. Although the government focus for from hotspots entering the Bay. This will also help to litter management is on prevention, the impact of understand where significant volumes of litter are any prevention initiatives will not be immediate. deposited, the key sources, and the behaviours to There are still likely to be litter hotspots on beaches change at these hotspots. and at key locations on waterways that discharge
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
62 PRIORITY AREA 5 Pathogens (human health)
The aim of this priority area is to minimise risks to Rather than these overflows occurring human health from pathogens, and to ensure the in a residential property, sewerage systems are Bay’s water quality supports the community’s designed with emergency relief structures to recreational uses. It also aims to provide assurance release this diluted sewage into areas of lower that shellfish collected from the Bay are not risk in the environment, such as waterways. contaminated by human pathogens. SEPP (Waters of Victoria) requires sewerage infrastructure to be designed to contain flows Pathogens are microscopic organisms including associated with a 1 in 5 years rainfall event. The viruses, bacteria, fungi and parasites. Contamination expectation is that when overflows occur during by pathogens can make water unsafe for swimming such rainfall events, there is sufficient dilution to as they may lead to infections and illness in humans. minimise the impact on beneficial uses. However, The presence and concentration of pathogens is a not all sewerage infrastructure in the catchment key measure of recreational water quality. currently meets this standard. Pathogens are also a risk to aquaculture and for Other known sources of pathogens include harvesting of shellfish by the public. This includes discharges from wastewater treatment plants and Blue mussels, a bivalve mollusc that is grown onsite domestic wastewater systems such as septic commercially in fishery reserves in the Bay, and tanks. Wastewater treatment plants ensure that other bivalves that may be collected from the Bay. sewage is treated and disinfected to reduce risks Mussels, like other bivalves, are filter feeders that where effluent is discharged to receiving waters. extract phytoplankton, bacteria and suspended Similarly, onsite systems require proper organic and inorganic particles from the surrounding maintenance to prevent the transport of nutrients, water as their food supply. As a consequence of pathogens and other pollutants to surface waters their ability to bioaccumulate pathogens and toxins and to prevent any impacts on groundwater. derived from contaminated waters, and because they are often eaten raw or only lightly cooked with SEPP (Waters of Victoria) and nationally MARPOL the gastrointestinal tract intact, bivalves have been (which is the International Convention for the associated with numerous outbreaks of human prevention of pollution from ships), regulate the disease (ASQAAC 2009). discharge of wastewater from vessels. This means that sewage produced on board a boat or ship Sources of pathogens must not be discharged into the Bay. In dry weather, sources of pathogens entering the One of the highest risks to recreational water Bay include spills of sewage as a result of blockages quality is from discharges or flows from stormwater and leakage from sewers, cross-connections drains or waterways during dry weather that between the sewerage and stormwater system, contain high concentrations of faecal contamination poor house-keeping in industrial and retail sites, (EPA 2012b). As there are often no apparent reasons unregulated discharge from onsite wastewater for these higher concentrations, the associated systems (septic tanks), animals (e.g. animal faeces, risks cannot be forecast and communicated to the aquaculture), direct discharge of waste from marine public. Weekly water quality sampling is unlikely to vessels, and bather shedding (shedding of bacteria detect these unexpected discharges or flows, and from the skin of people in the water). only detects them if they occur on the day of sampling. If these incidents occur during summer In wet weather, pathogen concentrations are likely there is greater likelihood of beach users being to increase, due to temporary discharge of sewage at risk of sickness. Some work tracking pathogens from the sewerage systems and runoff from urban at Mornington and Frankston has been completed and rural land. Infiltration and inflow into the by the EPA to help identify and manage sources. sewerage system during wet weather events can exceed the capacity of the sewer and result in overflows.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
63 Using risk profiles to set water quality objectives Communicating risk to beach users for pathogens As part of the Beach Report program, EPA monitors The intent of recreational water quality objectives water quality in the Bay. Water samples are collected in SEPP (Waters of Victoria) was to set pathogen weekly at 36 beaches. Enterococci, which is used as levels that protect beneficial uses of primary and the indicator for bacteriological water quality in secondary contact, and seafood consumption. marine waters, is a group of bacteria found in the These objectives were not based on relationships intestinal tracts of mammals (including humans), and of pathogen concentrations and health outcomes. is strongly associated with faecal waste (i.e. sewage). For primary and secondary contact, objectives EPA’s Beach Report provides recreational water linked to health outcomes are available in more quality information to the public, so they can make recent national guidelines, but are based on an informed decisions about when and where it’s safe overseas epidemiological study conducted over ten to swim in the Bay. The Beach Report also provides years ago. Future water quality objectives would EPA and catchment managers with water quality benefit from being based on accurate representation data to inform on immediate risk to beach users of health risks for the Bay and other Victorian during the summer, and to inform where management marine waters. is needed to protect and improve water quality. It is also unclear whether the legislative requirements Current end-of-season reporting for the last five in place for reporting and collating information on years shows that approximately half of the Bay’s swimmer-related illnesses are providing suitable beaches met objectives between 2011/12 and 2012/13 data to inform the health risk from swimming. (due to wetter summers), with 94–97% of beaches Another consideration is that Bay users can modify meeting objectives in the last two summers (EPA their behaviour in response to potential or known 2016). The Department of Health and Human Services contamination, and this may have flow-on effects has not reported any outbreaks of water-borne when developing risk profiles. illnesses from recreation in the Bay during this period. If receiving water quality objectives are set at a There has been considerable development in higher level than is needed to protect human health approaches and technologies to improve Beach there is potential for water corporations and other Report’s capability to monitor and inform on water stakeholders to over-invest in mitigations, with no quality risk to the public, and to assist catchment increase in health benefit for Bay users. Improving managers mitigate risk. Examples of this are the quantification of human health risks will support: microbial techniques with faster analysis times, better source tracking and real-time water quality • Decisions on investment in mitigation of faecal information. This could also include monitoring linked sources (e.g. sewer or treatment upgrades, to changes in flows in local drains and waterways. council integrated water plan actions) to be based on evidence of health risk, with less investment needed where health risk is low. • Recreational water quality objectives to be more protective of public health, set at the microbial levels linked to health outcomes, and will result in better management of faecal sources and communication of risk.
Stormwater drain at St Kilda East. Photo – Tangaroa Blue Foundation (http://www.tangaroablue.org/)
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
64 The EPA’s current forecast model provides basic • Better information on sources of faecal information on water quality risk but it could be contamination would enable more targeted improved by using the latest modeling techniques. improvement strategies. Faecal contamination The current model is also not easily automated for sources are likely to be from diffuse sources and increased timeliness of forecasts. are difficult to isolate. As a result the relative contribution of various sources and their impact Communication of Beach Report forecasts and on the recreational water quality in the Bay is beach advisories is via the Yarra and Bay website unknown. and EPA Twitter account. This communication could benefit from improved adoption of digital • The community’s top three values for the Bay are technologies and other strategies that result in recreational. When asked to select the three behaviour change. The program’s communication things they value most about the Bay, survey and detection of risk could also be further improved respondents’ top three values were: a healthy by inclusion of citizen science to communicate and marine habitat and wildlife (26%); opportunities gather data. for relaxation, socialising and recreation (21%); and swimming (17%). Many survey respondents Developing actions to reduce risk from pathogens also used the free text comments to elaborate on The 2001 Environmental Management Plan their desire for clean water to swim in with fewer identified pathogens as a risk to Bay values. impacts after wet weather and less risk of illness However, no specific actions were proposed. from swimming. Despite not ranking as a high risk in the environmental risk assessment (Hales and Brooks The actions (as listed in Table 9) will contribute 2015), this Plan has included recreational water to protecting the beneficial uses of primary and quality as a priority area for the following reasons: secondary contact, and seafood consumption in the Bay. • Current standards and indicators for recreational water quality are being reviewed. The SEPP (Waters) review includes a component of work reviewing water quality standards required to protect the beneficial uses for primary and secondary contact for recreational users. • The community’s use of the Bay is impaired after storm events. Beach Report recommends people avoid swimming near stormwater or river outlets 24–48 hours after heavy rain. This is due to the associated risk of contamination.
Table 9 Proposed actions and foundational activities for ‘Pathogens (human health)’
Action Potential partner organisations
ACTION 5-1: Improve understanding of links Councils, DELWP, DHHS, EPA, Melbourne Water, research between pathogen concentrations and organisations, water corporations human health for swimming and consumption of shellfish
ACTION 5-2: Adopt a risk-based approach Councils, DHHS, EPA, Melbourne Water, research to mitigate sources of pathogens found in organisations, water corporations the Bay
ACTION 5-3: Improve monitoring and reporting Councils, DHHS, EPA, Melbourne Water, research to better detect and communicate human organisations, water corporations health risks from pathogens
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
65 ACTION 5-1: Improve understanding of links between pathogen concentrations and human health for swimming and consumption of shellfish
This action will improve our understanding of human sources and mitigation strategies. However, QMRAs health risks from sources of faecal contamination have limited value in measuring health risk for and inform investment in mitigation activities. swimming as they characterise pathogens present in the water, but this may not represent health risk Collecting locally relevant data to establish the risk because there is uncertainty about how infective relationship between pathogen concentrations and pathogens are. QMRAs are currently the best human health associated with swimming-related assessment for characterising risk from seafood activities and consumption of seafood taken from consumption. the Bay, will provide better evidence of health risk. This will support prioritisation and investment by water corporations and local councils in actions to Activities in this action mitigate faecal sources. Activities will include conducting integrated QMRAs and epidemiological studies to directly measure To develop health-based water quality objectives, risk to health from swimmer-related activities in the quantitative microbial risk assessments (QMRA) Bay. These studies would be best undertaken as and epidemiological studies are used to quantify part of a greater research partnership/project, with human health risks. For swimming, an part funding from national bodies because the epidemiological study provides a direct measure of outputs would have broad benefit across Australia. human illness rates for swimmers that are exposed There may also be a need to conduct QMRAs to to recreational waters. The results inform policy and characterise and indirectly measure health risk regulatory guidance via the association between from consumption of seafood such as commercially these illness rates and regular sampling of water grown mussels and species of shellfish harvested quality indicators at the site. In addition, QMRAs from the Bay. provide information on the risk from different faecal
ACTION 5-2: Adopt risk-based approach to mitigate sources of pathogens found in the Bay
This action will inform water corporations and local – Predict risk to swimmers from local beach councils on what the highest risk faecal sources sources (e.g. bather shedding, sediment (transported via stormwater drains or located resuspension) directly at beach) are, where they are located, their – Understand other faecal sources that may be likely risk to human health and best approaches for a risk to aquaculture mitigating the risk. – Identify locations or high risk areas for Activities in this action faecal sources • Investigate whether dry weather flows from – Either add to existing water quality models or drains are occurring at high-risk beaches (i.e. create new modelling tools that can support popular beaches) by including a short-term drain water corporations and councils in managing monitoring project during summer. pathogens risks from stormwater. • Develop modelling (and supporting on-ground investigations) to: • Trial and evaluate source tracking and control methods for mitigation of faecal sources – Predict what level of flow and microbial (includes end-of-pipe solutions, capital concentration from drains and waterways infrastructure, or source control). contributes to the increased health risk at beaches • Review outcomes from activities above, and ensure that water corporations and local councils – Predict volume of sewage (e.g. sewer leaks or have in place appropriate management plans to spills, cross connections) and other contributions ensure that faecal sources are monitored and of faecal pollution in stormwater runoff for rain managed proactively. events and dry weather discharges/flows
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
66 ACTION 5-3: Improve monitoring and reporting to better detect and communicate human health risks from pathogens
This action will improve the existing Beach Report Activities in this action program by using the latest forecast and monitoring • Develop more accurate and timely forecasting methods and technologies to improve accuracy of microbial water quality. of forecasting poor water quality, triggering management responses, and communicating risk. • Adopt water quality technologies, techniques and Other processes to inform management will rely modelling approaches to better detect and on support from the community through citizen communicate risks to managers and community. science programs for collecting local information • Conduct short-term drain monitoring projects on conditions and risk factors. This action will to assess dry weather discharges/flows from high establish a strong foundation for adopting risk risk drains (i.e. at popular beaches). reduction behaviours (for example, better housekeeping in retail and industrial sites, • Set up citizen science programs and reporting discharge of wastewater from vessels). systems for community-led communication and detection of risk factors. • Improve Beach Report communication to increase awareness and influence behaviour change e.g. digital technology and social research.
During summer beach users can access the EPA's Beach Report to get daily forecasts for recreational water quality at popular beaches around the Bay. Photo – Parks Victoria
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
67 PRIORITY AREA 6 Habitat and marine life
The aim of this priority area is to conserve and a number of birds, fish, mammals (including the restore habitats and to ensure conditions are Burrunan Dolphin), echinoderms, as well as one suitable for marine life to thrive. crustacean (Southern hooded shrimp, Athanopsis australis), one reptile (Leatherback turtle, The Bay is home to a diverse array of marine plants Dermochelys coriacea), one mollusc (Chiton, and animals, with many of these species only found Bassethullia glypta) and one plant (Sea water-mat, in southern Australia. Over 1,300 species are Lepilaena marina). These species are a mix of documented in the Taxonomic Toolkit for Marine resident and transient species. Life of Port Phillip (http://portphillipmarinelife.net.au). Habitats include seagrass meadows, rocky The fauna of the Bay includes more than 300 intertidal and subtidal reefs, sponge gardens and species of fish and several hundred species of soft sediments. Plants found in the Bay include each of the following: molluscs (e.g. Blue mussels, phytoplankton (single-celled algae that live in the periwinkles and limpets), crustaceans (shrimp, water column and move with the currents), crayfish, krill and barnacles), polychaete (bristle) microphytobenthos (microscopic algae that live worms, cnidarians (e.g. corals, jellyfish and sea and form mats on the sea floor), seaweeds and anemones) and sponges (Harris et al. 1996). The seagrasses. Bay also supports populations of marine mammals including the Australian fur seal, and Common and The marine community of the Port Phillip Bay Bottlenose dolphins. A number of whale species, Entrance Deep Canyon is located in a 100-metre including Humpback, Southern Right and Killer, deep canyon reef complex at the entrance of the which are occasional visitors to the Bay, as are sea Bay. It includes a diversity of sessile invertebrates, turtles. Migratory birds are also seasonal visitors including more than 271 species of sponges, 115 of to the Bay. which are known only from the Port Phillip Heads (Edmunds et al. 2006). The Deep Canyon community There are more than 20 species found in the Bay is listed as threatened under the Flora and Fauna that are listed as threatened under the Victorian Guarantee Act 1988. Flora and Fauna Guarantee Act 1988. These include
Saltmarsh within the Jawbone Marine Sanctuary provides critical habitat for many waterbirds. Saltmarsh is also very effective at carbon sequestration. Photo – Parks Victoria
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
68 The Bay has four marine protected areas that were This Plan takes an active role in conserving and established as 'no take' areas in 2002. Port Phillip restoring habitats and allowing marine life to thrive. Heads Marine National Park is comprised of six Including it as a priority area is supported by the separate sections (Point Lonsdale, Point Nepean, following points drawn from the background Popes Eye, Mud Island, Portsea Hole and Swan Bay) investigations and consultation: and covers an area of 3,475 hectares. It contains a • Habitats and marine life are key values of the Bay: number of habitat types including rocky intertidal Schedule F6 identifies ecosystems - natural, and subtidal reefs, sandy beaches, mud flats, substantially natural with some modifications seagrass meadows and sponge gardens, which in and highly modified - as protected beneficial turn support a diversity of plants and animals. There uses of the Bay. This Plan recognises that the are also three marine sanctuaries in the Bay: the conservation of all habitats and marine life in the Point Cooke (290 hectares), Jawbone (30 hectares) Bay is required to maintain environmental values. and Ricketts Point (115 hectares). These marine parks and sanctuaries have been established to • Healthy habitats and marine life are key factors protect representative examples of Victoria's unique in delivering economic benefits: The value of and diverse marine environments, and the plants habitats was not specifically assessed in the and animals they support. economic work valuing the benefits provided by the Bay, but the Bay’s habitats directly underpin There are two Ramsar-listed wetland sites in the services such as commercial and recreational Bay. The Port Phillip Bay (western shoreline) and fishing, aquaculture, and tourism. Bellarine Peninsula Ramsar site is recognised for the quality of its natural wetlands and the large • The community values the Bay’s habitats and numbers of waterbirds that utilise its natural and wants to see them conserved: The online survey constructed wetlands, particularly migratory identified ‘maintain and improve marine life shorebirds. Up to 50% of the critically endangered and habitat’ as equal top challenge (36% of Orange-bellied parrot (Neophema chrysogaster) respondents). The top value of the Bay was ‘a population utilises the site for winter feeding healthy marine habitat and wildlife’ (26%). Support habitat, and it also provides an important drought for habitat and marine life at the community refuge for waterbirds. The second Ramsar site, the listening post events was also high. The consultation Edithvale-Seaford Wetlands on the east coast of also identified jet skis as a key challenge. the Bay, supports a rich diversity of Australian Respondents were concerned about the potential and migratory birds. These wetlands are the last dangers of jet skis on marine life, as well as remnants of the Carrum Carrum Swamp and assist swimmers and impacts of noise and petrol leaks. with flood protection in the Dandenong catchment. • Bay habitats and marine life are at risk: The Artificial structures in the Bay are important for environmental risk assessment (Hale and Brooks a number of species. Shipwrecks provide important 2015) identified waterbirds, marine mammals, habitat, and artificial reefs (located at Portarlington, sub-tidal and intertidal reefs, and fish as most Altona, Aspendale, Carrum, Seaford and Frankston) at risk, including: support recreational fishing. Rock walls and –– Waterbirds: changes in habitat through breakwaters provide homes for a variety of wildlife. erosion of shorelines and sea level rise. For example, the St Kilda Breakwater is home to a colony of Little penguins and Rakali (native water –– Marine mammals: entanglement in marine rats), and some of the old channel marker structures debris, toxicants and disturbance by marine are used as haul-out sites for Australian fur seals. vessels (out of scope). –– Sub-tidal and intertidal reefs: increased nutrients, leading to a decline in the diversity of macroalgae (seaweeds), and loss of habitat forming kelps. –– Fish: effects of sea urchin barrens and loss of habitat; and increased fishing pressure on target species (out of scope).
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
69 • Research is needed to understand the spatial • Seagrass habitat is important to the distribution of habitats and impact of stressors: enhancement of key fish stocks in the Bay and Hutchinson et al. (2011) in their Temperate Reefs maintaining the value of fishing: Seagrass beds Literature Review, stated that further research provide important nurseries for many fish species, is required to understand the ecology of reefs, including species fished commercially and particularly sub-tidal reefs. Gaps identified recreationally. Analysis by Blandon and Ermgassen included understanding of species composition, (2014) estimated that seagrass habitat enhances and the effect of spatial and temporal variation the stock of King George whiting at a rate of on assemblages. Current understanding is 5 kilograms/hectare/year, which for commercial limited to particular sampling sites and times fishing has an economic value of $5.6 million per of year. Basic data on species composition, year. The value of other target species, such as behaviour and ecology is lacking for sub-tidal Snapper is also enhanced by seagrass habitat. reefs, while the potential impacts of sedimentation, • Bay activities are known to have damaged key pollutants, and sea level rise on intertidal reefs is habitats in the past: Water pollution, marine pests, largely unknown. and commercial fishing for scallops by dredging • Climate change is likely to have a significant have significantly impacted shellfish reefs and impact on Bay habitats and marine life: The other habitats in the Bay. Scallop dredging in the science knowledge synthesis makes reference to Bay was stopped in 1996 after over 30 years of a decline in fish biomass (up to 69% in the deep operation, and there has been continuing effort centre) during the drought from 1997 to 2010 to reduce water pollution and marine pests. Effort (Parry and Hirst 2016). This was based on data is now being invested in restoring some of these from the Port Phillip Bay Annual Trawl Program impacted habitats. Examples include the shellfish (which ceased in 2011) and is further supported reef restoration projects being undertaken by by observations of reduced algal growth and The Nature Conservancy in partnership with development of urchin barrens during this period Fisheries Victoria, The Thomas Foundation and especially in the north of the Bay. The decline in the Albert Park Yachting and Angling Club. fish stocks was attributed mainly to a reduction The Seagrass and Reef research program on in algal productivity during the drought period. the ecology and management of seagrass and Warry and Hindell (2009) in their Review of temperate reefs in the Bay had two components: Victorian Seagrass Research, identified climate ‘targeted science’ and ‘using science to inform change (as well as population pressures along management’. The ‘targeted science’ component the coast) as a significant threat to seagrass involved the development of the Marine Biodiversity habitats. Science and Research Strategy (a framework to • Elevated sea urchin densities are a threat to the guide future investment into priority marine areas integrity of kelp beds on rocky reefs: Grazing across Victoria) and the marine research studies by large populations of the native sea urchin, administered through a grants process were Heliocidaris erythrogramma, has been implicated targeted towards informing practical management in the loss of macroalgal cover on reefs tools. The findings from this research have (particularly the once-dominant canopy-forming informed this priority area and shaping of actions. macroalga, Eklonia radiata) (Carnell and Keough, The Victorian Government’s State of the Bays 2014). Urchin barrens have been formed on more report will provide valuable information on than 90% of the reefs in the western and northern objectives, targets and timelines that should be parts of the Bay. This is thought to have negatively monitored to assess the change in condition of key affected reef-associated fish that depend on the habitats across the lifespan of this Plan, as well macroalgae for food and shelter. The Reef as identify data gaps that this Plan could address Ecosystem Evaluation Framework (REEF) program through supporting targeted research by for restoring the macroalgal canopy in the Bay, government agencies, universities and which was developed as part of the Seagrass and community groups. Reefs program, suggested that urchin densities be reduced to help rehabilitate kelp beds on rocky reefs (Johnson et al. 2015). However, as information is limited an adaptive management approach is most appropriate.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
70 Community based education and These activities facilitate the sharing of research programs information about conservation and management issues, and what people can do to help care for There are a number of government, community the Bay. The Port Phillip Baykeeper is a community and citizen science programs that promote healthy program run by the Port Phillip Eco Centre. The bay habitats and marine life. The actions of this Baykeeper brings together stakeholders from Plan will help to provide support for these across the government, research and business programs, which include: sectors as well as schools and the community • Reef Watch is a citizen science program run by to undertake projects that help to conserve and the Victorian National Parks Association (VNPA) improve the health of the Bay. Activities facilitated in partnership with Museum Victoria. The by the Baykeeper include shoreline shell surveys, program encourages divers and snorkelers to beach profiling activities and live mollusc surveys. monitor marine life at their favourite dive sites. • Marine Care Ricketts Point is a community group Current Reef Watch projects include the Great which supports the well-being of the Ricketts Point Victorian Fish Count, Dive In, Buddy up with a Marine Sanctuary. The group has approximately Blue Devil and Feral or in Peril. Reef Watch is also 250 members and works closely with Parks Victoria assisting with The Nature Conservancy reef (as the Sanctuary Manager), Bayside City Council restoration project. and other interested groups. Marine Care Ricketts • Sea Search is a Parks Victoria program that Point runs a Marine Education Centre and a range encourages and provides opportunities for of activities that help to conserve and preserve community participation in marine data the natural environment, and educate the collection and surveillance within Victoria’s community about the role and values of the marine national parks and marine sanctuaries. sanctuary. Activities include mapping, monitoring Sea Search assists in improving understanding and recording of marine life. of natural assets and processes, in the early • Coastcare Victoria is a government program detection of change, identification of threats, and that supports thousands of community volunteer provides meaningful opportunities for citizens to groups working to protect and enhance Victoria's make an active and welcome contribution to the coastline. Volunteer groups help to maintain management of marine parks and sanctuaries. marine and coastal environments, through • ‘i Sea, i Care’ is a marine ambassador program activities such as revegetating coastal areas, run by the Dolphin Research Institute. The program building tracks and boardwalks, fencing, has focused on primary school aged students monitoring native shorebirds and animals, (grades 5 and 6) and currently has more than presenting education and awareness raising 450 ambassadors in over 100 schools. The key sessions and protecting cultural sites. One of the messages of the program are that our marine life Coastcare Victoria programs, delivered as a is too precious to lose and that diffuse pollution partnership between DELWP and Parks Victoria from the catchment is one of the biggest issues with support from local volunteers and experts, for the marine environment. i sea, i care focuses is Summer by the Sea. on peer learning to increase marine stewardship • Summer by the Sea is an annual program that and leadership. The program also includes provides a great opportunity for the community partnerships with local councils. These partnerships to connect with the rich and diverse natural and have assisted with local government decision cultural values of Victoria’s marine and coastal making regarding stormwater issues. The Dolphin environments. Activities range from coastal Research Institute is currently expanding the discovery walks, rockpool rambles and snorkelling program to work with secondary school students, to junior ranger and responsible fishing activities. community groups and business. Through these activities, the program promotes • Port Phillip Eco Centre facilitates events that respect for coastal and marine environments and build community awareness on key habitat values understanding of the impacts our actions can of the Bay as well as highlighting issues that are have on these environments. impacting on these habitats. The Eco Centre runs a number of activities including snorkeling, cycling and twilight walking tours that showcase the diversity of plants and animals in the Bay.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
71 The actions in Table 10 address key concerns raised by the community and build on existing government and non-government programs to address the management needs and knowledge gaps of this priority area. The impacts to marine animals through entanglement and other litter-related issues are addressed in the ‘litter’ priority area of this Plan.
Table 10 Proposed actions for ‘Habitat and marine life’
Action Potential partner organisations
ACTION 6-1: Monitor Bay habitats at priority Community and industry groups, DEDJTR, DELWP, EPA, locations and improve habitat mapping tools Parks Victoria, research organisations
ACTION 6-2: Improve understanding of DEDJTR, DELWP, EPA, Parks Victoria, ecological processes, threats and pressure research organisationss
ACTION 6-3: Improve overall extent and Community and industry groups, DEDJTR, DELWP, EPA, condition of the Bay’s natural ecosystems Parks Victoria, research organisations
ACTION 6-1: Monitor Bay habitats at priority locations and improve habitat mapping tools
This action will improve knowledge and Citizen science will support the implementation of understanding of what and where habitats occur this action, including working with and supporting in the Bay and will inform understanding of non-government organisations and community changes to habitats that require management groups to undertake monitoring. There are a intervention. This will also help to improve the number of citizen science programs that promote community’s appreciation and understanding of healthy bay habitats and marine life including the the Bay’s habitats, ecosystems and biodiversity. Victorian National Parks Association’s Reef Watch program, Parks Victoria’s Sea Search program and Monitoring will focus on key areas, including those the Port Phillip Baykeeper’s shoreline shell surveys that are likely to be impacted by climate change, and live mollusc surveys. These activities help to and include sites that are part of existing increase the skills and knowledge of volunteers and monitoring programs, such as Parks Victoria’s provide the community with opportunities to Marine Protected Area program. Monitoring of sand participate in natural resource management and movement and stability will also be included to contribute to local decision-making. inform beach management works, such as beach re-nourishment. This action will link closely with the ‘Connect and inspire’ and ‘Empower action’ priority areas in this The information collected will be used to help to Plan, particularly the actions to develop and deliver demonstrate the effectiveness of our management programs to inspire greater appreciation of the interventions, including in reports such as the Plan’s Bay’s values and empower the broader community five-yearly evaluation report and future to get more actively involved in caring for the Bay. State of the Bays.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
72 ACTION 6-2: Improve understanding of ecological processes, threats and pressures
This action will increase understanding of how Issues for investigation include: ecosystem processes are affected by key threats • Consequences of changes in nutrient regimes and pressures. We need to understand which on ecosystem structure and function, including threats and pressures pose the greatest risk to Bay further examination of other nutrient sources habitats and marine life and prioritise management (e.g. groundwater) actions, focusing on those that are most likely to have successful outcomes. To do this, we need • Impacts of climate change on key ecosystem to have a good understanding of the linkages structure and function, including intertidal reefs between threats, environmental change and and low-lying coastal areas. on-ground management interventions. This action will be guided by the outcomes of the This action will follow a similar approach to the Reef Ecosystem Evaluation Framework (REEF), Western Port environment scientific review, which developed as part of the Seagrass and Reefs provided a strategic assessment of scientific program, and issues identified for further investigation knowledge and identified priority areas for research through habitat monitoring. These investigations (Melbourne Water 2011). The review considered will also inform development of models of changes to the ecosystem, threats to this ecosystem ecological processes and threats to guide and the scientific knowledge needed to effectively management interventions. manage these threats into the future. This action will also provide an opportunity to use Considerations included: Aboriginal cultural heritage data in a more cross- • What are the knowledge gaps? disciplinary manner to facilitate a greater understanding of the Bays environmental condition. • Which knowledge gaps are critical to underpin For example learning more about fish species and management decisions and agency prioritisation? selection from shell midden deposits , which could • What research will fill these critical knowledge provide further information about the condition of gaps? the Bay prior to European occupation.
ACTION 6-3: Improve overall extent and condition of the Bay’s natural ecosystems
This action will conserve, build resilience in • Developing and piloting approaches to manage and restore natural ecosystems across priority marine life issues. One example being discussed locations. It will be informed by the outcomes of is development of a science-based approach, other actions, which will identify locations where using recreational divers, to reduce habitat restoration activities are needed. This overabundant and damaging native sea urchins will include areas of significant ecological and in key areas of the Bay. Elevated densities of the recreational value (e.g. seagrass meadows, native sea urchin Heliocidaris erythrogramma intertidal reefs, important sea and shore bird sites have been identified as a threat to kelp beds on and popular dive sites) and those areas likely to rocky reefs in the Bay. The aim of the proposed be impacted by climate change and sea level rise pilot is to support the recovery of these kelp beds. (e.g. intertidal areas). This proposal will be subject to discussions with commercial fishers and the relevant permits There are a number of potential activities that have being secured. already been identified. These include: • Habitat augmentation techniques, including • Restoration of degraded habitats. An example is eco-engineering. Artificial structures, such as the reef restoration work currently being piers, groynes, seawalls and jetties, often provide undertaken by The Nature Conservancy. The minimal viable habitat for native species. They Nature Conservancy has partnered with the can be less hospitable to native species and may DEDJTR (Fisheries Victoria), The Thomas lead to localised declines in species diversity. Foundation and the Albert Park Yachting and Eco-engineering can provide opportunities to Angling Club to restore shellfish reefs in the Bay. support native species and habitats through Geelong (Wilsons Spit Reef), Hobsons Bay innovative techniques for the development of (Margaret’s Reef) and Chelsea are the first reefs multipurpose structures that are both functional being restored through the program. and beneficial to the local ecosystem.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
73 PRIORITY AREA 7 Marine biosecurity
The aim of this priority area is to manage the risks • Excursions of marine pests from the Bay have to Bay values from marine pests. occurred since the 2001 Environmental Management Plan. The science knowledge Marine pests are non-native plants or animals that synthesis notes marine pests endemic to the Bay can establish themselves in a new environment by have invaded other Victorian waters/embayments producing large numbers of spore or offspring. They since the development of the 2001 Plan (e.g. are ‘ecosystem engineers’ as they change the Undaria pinatifida has been present at Apollo dynamics of the ecosystem. Marine pests can Bay since 2009). seriously affect habitats, food chains, the ecosystem and our enjoyment of the marine environment. Some • Boat traffic will increase in the future. Shipping marine pests may pose a risk to human health and traffic will increase in the future to meet the have potential to affect the social and economic growing demand for goods of a growing benefits provided by the marine environment population. Small vessel movements are also including aquaculture, recreational and commercial likely to increase. Consequently the opportunity fishing and domestic and international shipping. for marine pests being introduced to and spread from the Bay is also likely to increase unless The last systematic survey of the Bay for introduced appropriately managed at both ports and marinas. marine species was completed in 2003 (Hewitt et al. 2004). The authors suggested that the Bay with • Future incursions are likely if not managed over 160 introduced species was the most invaded appropriately. Repeat invasions are very likely ecosystem in the southern hemisphere. The most due to the voracious nature of many of the conspicuous species that have received the most marine pests endemic to the Bay, and in many attention are the Northern Pacific seastar (Asterias cases will require management interventions. amurensis), Japanese kelp (or Wakame) (Undaria • Current governance arrangements and records pinnatifida), European fan worm (Sabella are hindering effective management. spallanzanii), European clam (Corbula gibba) and Performance audits of the management of marine European green shore crab (Carcinus maenas). A protected areas (VAGO 2011) and terrestrial parks more recent species to be identified is the red algae (VAGO 2010) note that complicated, unclear Grateloupia turuturu, which has been recorded in governance arrangements and outdated records the Point Cooke Marine Sanctuary. have hindered effective, coordinated management The 2001 Plan acknowledged that risks associated of invasive species and marine pests. with marine pests are most effectively addressed by • Marine vessels are the primary vector for marine nationally agreed arrangements and, in their absence, pests entering, leaving and travelling within the statewide programs. The 2001 Plan’s marine pest Bay. Vessels can transport marine pests externally program, therefore, aimed to address key Bay-focused through the growth and accumulation of aquatic tasks and form an additional layer to the relevant organisms (biofouling) and internally through the statewide and national programs. Specifically, the uptake and discharge of ballast or bilge water. objective of the 2001 Plan was, ‘Continue to improve Larval dispersals are another vector path. the management of vectors that lead to the introduction of marine pests to the Bay, reduce the • Biofouling is controlled by applying an impact from introductions through early detection anti-fouling agent to the vessels exterior. Its and rapid response action where possible, and effectiveness in preventing spread of marine pests reduce the impact on the Bay from established relies on regular and appropriate maintenance. pest populations where technically feasible’. The Commonwealth guideline Anti-fouling and in-water cleaning guidelines (2013) describes ‘best The background investigations support continued practice approaches for the application, specific management of marine pests in this Plan maintenance, removal and disposal of anti-fouling because: coatings and the management of biofouling and • Marine pests may pose a risk to Bay values. invasive aquatic species on vessels’ (described While the Bay has been relatively resilient to the as any craft that operates in an aquatic impacts of marine pests to date, the environmental environment) (Commonwealth 2003). However, risk assessment (Hale and Brooks 2015) identified the Victorian Government is yet to be a signatory that marine pests remain a high risk to the values, to these guidelines due to concerns over the with the greatest risk posed to denitrification, in-water cleaning prescriptions. intertidal and sub-tidal reefs and primary contact recreation.
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
74 • Biofouling on aquaculture equipment is also • There is a lack of monitoring data regarding a potential vector for marine pest transfer. marine pests. Parks Victoria undertake Translocation of mussel ropes occurs within the monitoring of subtidal reefs and intertidal areas Bay and to and from Western Port, increasing in the marine parks and sanctuaries, which the risk of movement of marine pests to new includes documenting the presence of known locations. To address this issue, Guidelines for marine pests (e.g. Woods and Edmunds 2014). Assessing Translocations of Live Aquatic There have also been localised surveys of Organisms in Victoria were completed in 2003 specific pest species associated with smaller and updated in 2009. Protocols developed under research projects. There has been no systematic the guidelines include the Victorian Protocol for monitoring or surveys of marine pests in the Bay the Translocation of Blue Mussels, the Victorian since 2003. Abalone Aquaculture Translocation Protocol and • Marine pest management arrangements in Management Plans for aquaculture reserves Australia are currently being reformed. The declared under the Fisheries Act 1995. Commonwealth Government has introduced • Spread of marine pests through ballast water new legislation which will affect marine pest is controlled through appropriate boat hygiene. management in Victoria. Currently, the protection Ballast water is water used by ships to improve of Victorian waters from the introduction of stability and safety under variable load conditions. marine pests is supported by three key items It is taken up and discharged from the vessel of subordinate legislation: the Environmental when cargo is loaded or unloaded, or when a Protection (Ships Ballast Water) Regulations vessel requires additional stability in bad weather. 2006, the Waste Management Policy (Ships This water can contain marine pests and therefore Ballast Water), and the protocol for environmental unregulated discharge can result in marine pest management ‘Domestic ballast water populations being transferred to unaffected management in Victorian state waters’. waters. High-risk ballast can be dealt with during • The Waste Management Policy and Protocol a journey by ‘exchanging’ at sea with uptake for Environmental Management set out of waters distant from the coast (where there responsibilities for ship owners to manage are no pests). domestic ballast water to reduce environmental • Community and stakeholders are concerned risk in Victorian waters. Vessels are required about the potential risk of marine pests. At the to complete a risk assessment of ballast water listening posts, ‘Ecosystem issues’ received contained onboard. High-risk ballast water 28% of nominations. There were 44 mentions of cannot be discharged within Victorian state marine pests and invasive species in the survey. waters (DAWR 2011). The ballast water regulations Invasive species were mentioned in formal establish offenses for discharging ballast water submissions and interviews, with some without written authorisation and for failing to stakeholders highlighting the lack of funding complete reporting requirements. They also set as a barrier to proper management. fees and the process for collection. EPA conducts random inspections of boats entering the Bay • Further work and follow up required on original for compliance with these regulations. As of 2012, Environmental Management Plan actions. While EPA has not found a ship to be non-compliant many of the actions in the 2001 Plan relied on (EPA 2012c). action at a national or state level, work is still required to ensure the full intent of these actions • The Commonwealth Biosecurity Act 2015 is realised. This particularly relates to actions 2.3 will commence on 16 June 2016, however (Vector Management – Fouling of Small Vessels commencement of the domestic ballast water – To improve management of biotic fouling of provisions has been deferred. When the ballast small vessels to reduce the risks of introduction water provisions commence, the new national and dispersal of marine pests), 2.5 (Early framework for regulation of ballast water will Detection – To monitor priority locations within protect domestic waters from the introduction the Bay for new marine pest introductions) and and spread of marine pests. 2.6 (Mitigate Effects of Introductions – To respond rapidly to new introductions of marine pests and reduce the impact of established populations on the Bay’s management objectives, where technically feasible and environmentally, socially and economically beneficial).
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
75 Consistent with the directions of the 2001 The proposed actions (Table 11) have been Environmental Management Plan, this Plan developed based on the recommendations and key acknowledges that marine pests are best managed findings from the science knowledge synthesis and through nationally agreed arrangements. However, review of the marine pests program in the 2001 there are actions that can directly assist Plan. The actions identified focus on reducing the management of marine pests in the Bay. risks of introduction of marine pests, early detection of marine pests and mounting a rapid response to any identified marine pest incursion.
Table 11 Proposed actions for ‘Marine biosecurity’
Action Potential partner organisations
ACTION 7-1: Prevent introduction and dispersal Commonwealth Government, community and industry of marine pests groups, DEDJTR, DELWP, EPA, Parks Victoria
ACTION 7-2: Monitor priority locations for Commonwealth Government, community and industry early detection of marine pest introductions groups, DEDJTR, DELWP, EPA, Parks Victoria
ACTION 7-3: Respond rapidly to new Commonwealth Government, community and industry introductions of marine pests groups, DEDJTR, DELWP, EPA, Parks Victoria
ACTION 7-1: Prevent introduction and dispersal of marine pests
This action will minimise the risk of marine pests • Working with the Commonwealth Government being introduced to and spreading from the Bay. as domestic ballast water management arrangements transition from state to This action recognises that prevention is better Commonwealth regulations. than cure when it comes to managing marine pests. And that ballast water and biofouling are • Working with the Commonwealth Government recognised as the primary vectors of marine to develop programs to improve management of pest introduction and spread. biofouling on large vessels. Activities in this action • Improving awareness of small boat users about Activities to reduce risks associated with these the risks of spread of marine pests from vectors are the focus of this action and biofouling and ways to reduce this. implementation is likely to include: • Ensuring that aquaculture guidelines, protocols and management plans are current and reflect best practice approaches and best available scientific knowledge to help reduce the risk of marine pest introduction and spread.
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76 ACTION 7-2: Monitor priority locations for early detection of marine pest introductions
This action will include research and monitoring nationally agreed processes, procedures and using a risk-based approach to focus on detection standards for marine pest monitoring programs. of any new pests. This will help to establish baseline The Commonwealth also provided funding for information regarding the distribution and abundance development of specific monitoring plans. Monitoring of existing marine pest species within the Bay. of the Victorian sites has not commenced as cost-sharing arrangements are still to be agreed Early detection of marine pest introductions is with industry. This action will involve resolution of critical for effective management. Once established, these arrangements so that monitoring can marine pests are near impossible to eradicate and commence. can affect habitats, food chains, the ecosystem, and our enjoyment of the marine environment. Regular monitoring of other priority locations within Ongoing monitoring and surveillance are therefore the Bay for new marine pest introductions will also important for managing marine pest risks. be important. Monitoring should focus on areas that are high-risk locations for primary introductions Australian marine pest monitoring guidelines and to the Bay or spread (e.g. marine parks and an accompanying Australian marine pest monitoring sanctuaries). This could include piloting new rapid manual were developed in 2010 as part of the assessment tools (e.g. eDNA sampling, settlement National System for the Prevention and Management plates) that make a step change in making of Introduced Marine Pest Incursions. The information available. There is also opportunity guidelines established a National Monitoring to use citizen science to assist in monitoring for Network of eighteen locations around Australia, marine pest introductions. including the Port of Melbourne, and outline the
ACTION 7-3: Respond rapidly to new introductions of marine pests
This action focuses on emergency management In addition to emergency response, this action through rapid response to new introductions. includes development of an operational manual to The Emergency Management Act (1986 and 2013) build capacity and preparedness to rapidly respond provides the legislative framework for emergency to any newly identified introductions of marine pests management in Victoria. Under this sits the prior to becoming established. Emergency Management Manual Victoria (EMMV) Implementing actions to mitigate the impact of which contains policy and planning documents for established pests may also be considered in the emergency management and provides details longer term where technically feasible and about the roles different organisations play. Marine environmentally, economically and socially beneficial. pest incursions are listed as a declared emergency in the EMMV.
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77 5 Delivering the Environmental Management Plan
This Plan has been developed with an understanding Preparation of the MERI strategy will be an iterative that its implementation will be a collaborative effort process, ensuring that actions within this Plan are between government, industry and the community. designed in a manner that allows evaluation and reporting of progress. The MERI strategy will assist The vision and goals are considered to be long- in identifying the level of detail needed in sub-actions term aspirations, and will be progressively worked for each priority area. It will focus on key elements towards over time. This plan outlines 21 actions, that will support an adaptive management across 7 priority areas, which will be delivered over framework. the next 10 years. Annual reports will be used to inform government Arrangements for delivery of this Plan will agencies on progress with delivery actions. These be confirmed through discussion between the annual reports will include activities undertaken, lead agencies involved in its development and costs and progress to date, highlights, and proposed those parties that will be actively engaged in adjustments if required. The primary audience implementing the actions. There will be a need for the annual reports is the overseeing body for to establish governance and coordination implementation of this Plan, and partner agencies arrangements, to ensure that actions are suitably responsible for oversight and delivery of actions. resourced and remain on track to deliver the The annual reports will potentially be the basis for required outcomes. annual adjustment of actions within this Plan. Monitoring, evaluation, reporting Evaluation reports will be prepared on a five-yearly and improvement basis. These will be a more significant piece of work that builds on the information collected for the annual To be consistent with the approach and principles reports. They will be outcome focused, outlining of the international standard ISO 14001:2015 for actions that have been undertaken and the level environmental management systems, regular of progress towards achieving the desired ten year evaluation of the plan will be required to refine outcomes of the Plan for each of the priority areas. and improve its implementation. To achieve this, a The evaluations will use a multiple lines of evidence Monitoring, Evaluation, Reporting and Improvement approach and the use of a Program Logic to look (MERI) Strategy is being developed to support for progress in any intermediate outcomes. implementation of this Plan. The MERI strategy will The evaluations will draw on the monitoring and adopt a flexible approach to enable agencies to reporting undertaken by other programs, such as determine the most efficient and effective ways to the five-yearly State of the Bays and EPA’s water implement the actions. quality monitoring program together with targeted reporting undertaken as actions within this Plan.
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78 International standard ISO 14001 for management system can help to enhance Environmental Management Systems environmental performance, fulfil compliance obligations and achieve environmental objectives. This Plan is consistent with the approach and principles of ISO 14001:2015 for environmental The ISO 14001 approach is based on the Plan-Do- management systems. ISO 14001 is one of a family Check-Act (PDCA) model, which provides an of environmental management standards prepared iterative process for achieving continuous by the International Organization for Standardization improvement. (ISO). The standard outlines criteria for an • Plan: establish environmental objectives and environmental management system (EMS) that processes to meet agreed goals and objectives provides ‘a framework to protect the environment and respond to changing environmental conditions • Do: implement actions in balance with socio-economic needs’. • Check: monitor and measure progress and An EMS is a framework for managing environmental report on the results impacts, both positive and negative, providing a • Act: take actions for further improvement. structured approach to plan and implement activities that help protect the environment, and monitor This approach and how the Plan aligns with it is environmental performance. An environmental shown in Figure 14.
PLAN
PLANNING DEVELOPING THE EMP
SUPPORT IMPROVEMENT AND OPERATION ACT DO MERI STRATEGY IMPLEMENTING THE EMP
PERFORMANCE EVALUATION MERI STRATEGY
CHECK
Figure 14 The ISO 14001:2015 framework for environmental management systems – plan, do, check and act
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
79 References
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Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
83 Acronyms and abbreviations
Abbreviation Definition ASQAAC Australian Shellfish Quality Assurance Advisory Committee BPEM Best Practice Environmental Management guidelines CAPIM Centre for Aquatic Pollution Identification and Management Chla Chlorophyll a CMA Catchment Management Authority CRC Cooperative Research Centre CSIRO Commonwealth Scientific and Industrial Research Organisation DAWR Commonwealth Department of Agriculture and Water Resources DEDJTR Department of Economic Development, Jobs, Transport and Resources DELWP Department of Environment, Land, Water and Planning DHHS Department of Health and Human Services DPI Department of Primary Industries DSE Department of Sustainability and Environment EDC Endocrine Disrupting Compound eDNA environmental DNA (genetic material left behind in the environment) EMMV Emergency Management Manual Victoria EMP Environmental Management Plan EMS Environmental Management System EPA Environment Protection Authority, Victoria ISO International Organization for Standardization MARPOL International Convention for the Prevention of Pollution from Ships MERI Monitoring, Evaluation, Reporting and Improvement PP&W CMA Port Phillip & Western Port Catchment Management Authority QMRA Quantitative Microbial Risk Assessment REEF Reef Ecosystem Evaluation Framework RMIT Royal Melbourne Institute of Technology University Melbourne SEPP State Environment Protection Policy (Waters of Victoria). (Waters of Victoria) These are the existing regulations SEPP (Waters) State Environment Protection Policy (Waters). These are new regulations, currently being developed
lug/L Micrograms per litre VACL Victorian Aboriginal Corporation for Languages VAGO Victorian Auditor-General’s Office VLAA Victorian Litter Action Alliance VNPA Victorian National Parks Association WSUD Water sensitive urban design
Developing a new Port Phillip Bay Environmental Management Plan: Seeking your input on the draft plan
84 © The State of Victoria Department of Environment, Land, Water & Planning 2016 This work is licensed under a Creative Commons Attribution 4.0 International licence. You are free to re-use the work under that licence, on the condition that you credit the State of Victoria as author. The licence does not apply to any images, photographs or branding, including the Victorian Coat of Arms, the Victorian Government logo and the Department of Environment, Land, Water and Planning (DELWP) logo. To view a copy of this licence, visit http://creativecommons.org/licenses/by/4.0/ Disclaimer This publication may be of assistance to you but the State of Victoria and its employees do not guarantee that the publication is without flaw of any kind or is wholly appropriate for your particular purposes and therefore disclaims all liability for any error, loss or other consequence which may arise from you relying on any information in this publication.
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